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HomeMy WebLinkAbout2017-03-07 City Council Agenda Packet City Council 1 MATERIALS RELATED TO AN ITEM ON THIS AGENDA SUBMITTED TO THE CITY COUNCIL AFTER DISTRIBUTION OF THE AGENDA PACKET ARE AVAILABLE FOR PUBLIC INSPECTION IN THE CITY CLERK’S OFFICE AT PALO ALTO CITY HALL, 250 HAMILTON AVE. DURING NORMAL BUSINESS HOURS. March 7, 2017 Special Meeting Council Chambers 6:00 PM Agenda posted according to PAMC Section 2.04.070. Supporting materials are available in the Council Chambers on the Thursday 10 days preceding the meeting. PUBLIC COMMENT Members of the public may speak to agendized items; up to three minutes per speaker, to be determined by the presiding officer. If you wish to address the Council on any issue that is on this agenda, please complete a speaker request card located on the table at the entrance to the Council Chambers, and deliver it to the City Clerk prior to discussion of the item. You are not required to give your name on the speaker card in order to speak to the Council, but it is very helpful. TIME ESTIMATES Time estimates are provided as part of the Council's effort to manage its time at Council meetings. Listed times are estimates only and are subject to change at any time, including while the meeting is in progress. The Council reserves the right to use more or less time on any item, to change the order of items and/or to continue items to another meeting. Particular items may be heard before or after the time estimated on the agenda. This may occur in order to best manage the time at a meeting or to adapt to the participation of the public. To ensure participation in a particular item, we suggest arriving at the beginning of the meeting and remaining until the item is called. HEARINGS REQUIRED BY LAW Applicants and/or appellants may have up to ten minutes at the outset of the public discussion to make their remarks and up to three minutes for concluding remarks after other members of the public have spoken. Call to Order Oral Communications 6:00-6:15 PM Members of the public may speak to any item NOT on the agenda. Council reserves the right to limit the duration of Oral Communications period to 30 minutes. Action Items Include: Reports of Committees/Commissions, Ordinances and Resolutions, Public Hearings, Reports of Officials, Unfinished Business and Council Matters. 6:15-8:30 PM 1. Adoption of an Ordinance Amending Chapter 16.28 of the Municipal Code to Require Testing, Monitoring and Protective Measures for Temporary Construction-related Dewatering and Consideration of Recommendations From the Policy and Services Committee to Direct Staff to Analyze Additional Measures to Minimize Construction-related Groundwater Pumping 8:30-10:30 PM 2. PUBLIC HEARING: Adoption of an Ordinance Amending Chapter 18 (Zoning) of the Palo Alto Municipal Code to Update Code Sections Regarding Accessory Dwelling Units. The Ordinance is Exempt From the California Environmental Quality Act (CEQA) per Sections 2 March 7, 2017 MATERIALS RELATED TO AN ITEM ON THIS AGENDA SUBMITTED TO THE CITY COUNCIL AFTER DISTRIBUTION OF THE AGENDA PACKET ARE AVAILABLE FOR PUBLIC INSPECTION IN THE CITY CLERK’S OFFICE AT PALO ALTO CITY HALL, 250 HAMILTON AVE. DURING NORMAL BUSINESS HOURS. 15061(b), 15301, 15303 and 15305 and was Recommended for Approval by the Planning & Transportation Commission on November 30, 2016 (Continued From February 6, 2017 and March 6, 2017) Inter-Governmental Legislative Affairs Council Member Questions, Comments and Announcements Members of the public may not speak to the item(s) Adjournment AMERICANS WITH DISABILITY ACT (ADA) Persons with disabilities who require auxiliary aids or services in using City facilities, services or programs or who would like information on the City’s compliance with the Americans with Disabilities Act (ADA) of 1990, may contact (650) 329-2550 (Voice) 24 hours in advance. City of Palo Alto (ID # 7633) City Council Staff Report Report Type: Action Items Meeting Date: 3/7/2017 City of Palo Alto Page 1 Summary Title: Direct Staff to Take Further Action to Minimize Basement Construction Pumping of Groundwater Title: Adoption of an Ordinance Amending Chapter 16.28 of the Municipal Code to Require Testing, Monitoring and Protective Measures for Temporary Construction-Related Dewatering and Consideration of Recommendations From Policy and Services Committee to Direct Staff to Analyze Additional Measures to Minimize Construction-Related Groundwater Pumping From: City Manager Lead Department: Public Works Recommendation At their December 14, 2016 meeting, the Policy and Services Committee recommended that Council: 1. Adopt seven new components for the City’s Construction Dewatering Guidelines. Staff is further recommending that Council adopt an ordinance codifying the Dewatering Guidelines, with the updates recommended by Policy and Services, in the Municipal Code at Chapter 16.28 (Attachment A). 2. Direct staff to consider four additional requirements and return to Council for adoption, with a goal of making the new requirements applicable for the 2018 construction season (Attachment B). Executive Summary Policy and Services Committee endorsed staff recommendations being forwarded to Council regarding the Construction Dewatering Program approved by Council in February 2016 including enhancements occurring in two phases; the first applied to the 2017 construction season and the second to 2018. City of Palo Alto Page 2 The 2017 enhancements would include improving fill station performance, ensuring watering of adjacent neighboring vegetation, monitoring actual groundwater elevation changes, clarifying reporting, and enhancing the Hydrogeological Study, while adding an exemption to the Study if cut-off wall technology is used to limit groundwater pumping. Staff recommends the current program with proposed 2017 additions be implemented, and that the attached ordinance (Attachment A) be adopted. The second phase would potentially contain additional enhancements, subject to further analysis. Staff will return to Council to authorize these enhancements, with a goal of making them applicable for the 2018 construction season (Attachment B). Staff recommended two additional requirements for 2018 that the Policy and Services Committee did not recommend that Council pursue. These are development of an additional pumping fee and a requirement to analyze the impacts of multiple pumping sites operating at once. Of the four new requirements being recommended to Council for further evaluation, the most impactful is cut-off walls (or similar advanced technologies) be considered as a requirement in 2018 and a maximum of 30 gallons per minute (gpm) as a performance standard. Background Council approved construction groundwater pumping requirements in February 2016 for the 2016 construction season (Attachment A: CMR 6478). The requirements apply to sites not having either their Conditions of Approval from the Planning Department, or their building permit from Development Services by February 16, 2016. These requirements were incorporated into the planning and building permit process on a pilot basis for the 2016 construction season. Staff was to evaluate the results of the pilot and return to Council with a proposed ordinance codifying specific requirements. At the same time, Council directed staff to continue working with Santa Clara Valley Water District to further understand the North County groundwater systems and provide an update. That update was provided in April 2016 (Attachment C: CMR 6700). City of Palo Alto Page 3 Discussion In reviewing the results and experiences of the 2016 pilot, staff found: 1. There were eight residential basement construction sites which required pumping to the storm drain system. The total water pumped from all sites was 140 million gallons (MG). As a point of comparison, the City of Palo Alto uses about 8 MG per day. The City required that pumping be completed in 10 weeks and not extend beyond October 31. The average duration of pumping was 10.8 weeks. Based on this data and discussions with stakeholders, it appears the 10-week time frame is more generally achievable if a two week start-up period is added ahead of the 10-week period. 2. Three of the sites were required to submit a Geotechnical Study and draw conclusions about potential impacts. The other sites received their Conditions of Approval or building permits before February 16, 2016, and did not have to perform this study. Generally, the studies that were done predicted lower flow rates than occurred. The calculations were not well supported and readily verifiable. Community members submitted comments and observations suggesting the very low groundwater drawdown levels predicted may have been substantially exceeded. 3. Some neighbors and truckers complained water flow rates from the fill stations were inadequate. This can be remedied by requiring performance tests prior to full start-up and storage tanks being configured so they are always at least one-half full. 4. Recorded flow monitoring was spotty and prone to error. The City’s reporting requirements need to be strengthened and include accuracy checks for meters. 5. Some of the flow meters were placed without sufficient attention to safety, and safety measures need improvement. Based on analysis of the pilot results, input from stakeholders and previous direction from Council, staff is recommending modifications to the dewatering City of Palo Alto Page 4 requirements in two phases. The first phase is making relatively minor changes to the requirements adopted by Council for the 2016 construction season. Proposed changes 1 through 3 below (and the pre-existing requirements) would apply to all sites in the 2017 construction season. Proposed changes 4 through 7 would apply to those sites not having a building permit or Planning Conditions of Approval before the effective date of the attached ordinance. The second phase would be implemented after further analysis and return to Council, with a goal of being effective the 2018 construction season. The two phases are described below: First Phase: Proposed changes for the 2017 Construction Season 1. Fill Stations: Demonstrate a maximum 10-minute truck fill time and 2 simultaneous, 100’ hose, 10 gallons per minute (gpm) deliveries (for each hose) during the two week start up period defined below. Design the tank system so that the storage tank is always at least one-half full. Ongoing metering of instantaneous and total flow of fill stations is currently required. 2. Pump for no more than 10 weeks for residential sites. A two week start-up period ahead of the 10 weeks is allowed. At the end of the two week start- up period, compliance with all performance standards and water quality standards shall be demonstrated. 3. Report on all measurements and requirements (reports due at the end of the two-week start-up period, then bi-weekly, and then a final report at the end of pumping). 4. At the basement slab center, pump the groundwater down no deeper than 3 feet below the depth of the slab, following the two week start-up period. Once the slab is poured, the depth to the center of the slab shall be 1 foot. 5. Offer to water trees/plants on adjacent properties and do so if requested. 6. The City will add supplemental city contract resources to manage information, review submittals, verify compliance and prepare public reports; and add those costs to city permit fees (this will average to approximately $10,000 per site). City of Palo Alto Page 5 7. Geotechnical Study Enhancements a) Currently a Geotechnical Study is required to determine groundwater drawdown levels and any associated impacts. The key change for CY 2017 is to require verification of the anticipated drawdown curve with a pump test using actual wells, by the end of the two week start-up period. Cone Penetrometer Tests (CPT) is also encouraged to verify soils data. The actual pumping rates, following the two week start-up period, shall be limited to the rates used in in the verification. The maximum amount of water pumped over the 10-week period, (excluding the 2 week start- up period) shall be limited to that calculated during verification. This activity will add on the order of $10,000 to the construction cost of a basement (separate from the additional $10,000 permit fee described in #6 above). b) To support the work in (a) above, measure the ground water level at a distance representative of the distance to the nearest structure on an adjacent parcel, or farthest feasible point on the subject site. This monitoring shall be daily for the first week (including the two week start-up period), then weekly thereafter. If drawdown results are greater than anticipated by the Geotechnical Study, at the end of the 2 week start-up period or thereafter, submit a revised Geotechnical Study and any revised conclusions on impacts of the groundwater drawdown. The cost of this activity is largely covered by the cost of (a) above, but some additional cost will be incurred. c) Survey and mark land elevations on structures on adjacent parcels (assuming permission is obtained) prior to any pumping. This activity will not add significantly to construction costs, as survey measurements are routinely taken. d) The Geotechnical Study and verification shall not be required if the storm drain pumping is continuously limited to 30 gallons per minute (gpm) following the two week start-up period. This could be accomplished through installation of groundwater cut-off walls (such as secant walls) or similar construction techniques. (These optional activities would, if implemented, add significantly to the cost of constructing basements.) Similarly, the 10 week pumping period can be extended if the 30 gpm flow rate is continuously achieved following the two-week start-up period. The fee described in item 6, would also be lowered dramatically or eliminated. Additionally, the contractor need City of Palo Alto Page 6 only provide off-site hauling of water sufficient to meet the needs of adjacent neighbors, as opposed to the one-day per week requirement for 2016. Second Phase: Potential Calendar Year (CY) 2018 Construction Season Changes, for further analysis by staff and return to Council: 1. Determine whether existing wells from other sites/purposes can be used to satisfy the groundwater monitoring requirements; utilize such existing wells if practical. 2. Limit the groundwater level drawdown at the closest off-site adjacent structure to 3’. 3. Determine whether existing wells can be used to satisfy the requirement in (b) above; if not, install a new monitoring well. 4. Potentially, require the use of groundwater cut-off walls, or other construction methods, which will limit the pumping (following a two week start-up period) to 30 gallons per minute (gpm). Resource Impact The City’s review, monitoring, and approvals associated with program implementation of the suggested measures will require approximately $100,000 in contract services. If this approach is approved, Council will be asked to approve a budget amendment in the General Fund as well as an amendment to the Municipal Fee schedule to allow cost- recovery. If the 2017 changes are approved, staff estimates the cost of basement construction would increase by approximately $20,000 per site. Environmental Review The 2017 recommended program enhancements are minor modifications to an existing regulatory program designed to be protective of the environment. These modifications are not subject to the California Environmental Quality Act (CEQA) as there is no possibility the modifications may have a significant effect on the environment (CEQA Guidelines Section 15061(b)(3)). The potential 2018 requirements will be evaluated and the appropriate environmental review prepared as specific proposals are developed. City of Palo Alto Page 7 Attachment A: 2017 Ordinance amending the Municipal Code by adding Amending Chapter 16.28 Attachment B: List of Additional Potential Requirements to be considered by Staff for 2018 Attachment C: February 1, 2016 CMR 6478 Attachment D: 2016 Pumping Requirements Attachment E: April 11, 2016 CMR 6700 Attachments:  Attachment A: Dewatering ORD Chapter 16.28 v2  Attachment B: Second Phase Potential Calendar CY2018  Attachment C: SR 6478 Approval of 2016 Basement Construction Dewatering Program Changes  Attachment D: Guidelines for Dewatering During Below Ground Construction  Attachment E: SR 6700 Update on Recycled Water Planning Efforts and Groundwater Studies  Attachment F - Council letter 03-07-17 - Dewatering1  Attachment G - Council letter 03-07-17 - Dewatering2 NOT YET APPROVED 1 February 2, 2017 Ordinance No. ____ Ordinance of the Council of the City of Palo Alto Amending Chapter 16.28 of the Municipal Code to Require Testing, Monitoring and Protective Measures for Temporary Construction-Related Groundwater Pumping (Dewatering) The Council of the City of Palo Alto does ORDAIN as follows: SECTION 1. Findings and Declarations. The City Council finds and declares as follows: A. Temporary pumping and discharge of groundwater during construction of below- ground basements and garages removes tens of millions of gallons of groundwater in Palo Alto each year, and discharges this water to the storm drain system. B. For many years, Palo Alto has prohibited pumping of groundwater after the completion of basement construction. C. In recent years, concerns have arisen regarding dewatering and its impacts, including significant waste of a community resource, potential damage to neighboring structures, trees and vegetation, and possible impacts on the groundwater system. D. To begin to address these concerns and gather additional information for potential future action, the Palo Alto City Council adopts this ordinance requiring testing, monitoring and protective measures where temporary construction-related groundwater pumping (dewatering) will occur. SECTION 2. Section 16.28.030 of Chapter 16.28 (Grading and Erosion and Sediment Control) of the Palo Alto Municipal Code is hereby amended to read as follows: 16.28.030 Definitions. When used in this chapter, the following words shall have the meanings ascribed to them in this section. (a) "Applicant" means any person, corporation, partnership, association of any type, public agency, or any other legal entity who submits an application to the building official for a permit pursuant to this chapter. (b) "As-graded" means the surface conditions extant on completion of grading. (c) "Bedrock" means in-place solid rock. (d) "Bench" means a relatively level step excavated into earth material on which fill is to be placed. NOT YET APPROVED 170203 th 0140175 2 February 2, 2017 (e) "Best management practices" means a technique or series of techniques which, when used in an erosion control plan, is proven to be effective in controlling construction- related runoff, erosion, and sedimentation. (f) "Borrow" means earth material acquired from an off-site location for use in grading on a site. (g) "Building official" means the chief building official of the city of Palo Alto and his/her duly authorized designees. (h) "City engineer" means the city engineer of the city of Palo Alto and his/her duly authorized designees. (i) "Civil engineer" means a professional engineer registered in the state of California to practice in the field of civil works. (j) "Civil engineering" means the application of the knowledge of the forces of nature, principles of mechanics, and the properties of materials to the evaluation, design, and construction of civil works for the beneficial uses of mankind. (k) "Compaction" means the densification of a fill by mechanical means. (l) "Drainageway" means a natural or manmade channel which collects and intermittently or continuously conveys storm water runoff. (m) "Earth material" means any rock, natural soil, or fill, and/or combination thereof. (n) "Engineering geologist" means a geologist experienced and knowledgeable in engineering geology and certified by the state of California to practice engineering geology. (o) "Engineering geology" means the application of geologic knowledge and principles in the investigation and evaluation of naturally occurring rock and soil for use in the design of civil works. (p) "Erosion" means the wearing away of the ground surface as a result of the movement of wind, water, and/or ice. (q) "Final erosion and sediment control and storm water pollution prevention plan ('final plan')" means a set of best management practices or equivalent measures designed to control surface runoff and erosion and to retain sediment on a particular site after all other planned final structures and permanent improvements have been erected or installed. NOT YET APPROVED 170203 th 0140175 3 February 2, 2017 (r) "Grade" means the vertical location of the ground surface. "Existing grade" means the grade prior to grading. "Rough grade" means the stage at which the grade approximately conforms to the approved plan. "Finish grade" means the final grade of the site which conforms to the approved plan. (s) "Grading" means any land disturbance or land fill, or combination thereof. (t) "Interim erosion and sediment control and storm water pollution prevention plan ('interim plan')" means a set of best management practices or equivalent measures designed to control surface runoff and erosion and to retain sediment on a particular site during the period in which pre-construction and construction-related land disturbances, fills, and soil storage occur, and before final improvements are completed. (u) "Key" means a designed compacted fill placed in a trench excavated in earth material beneath the toe of a proposed fill slope. (v) "Land disturbance" or "land-disturbing activities" means any moving or removing by manual or mechanical means of the soil mantle or top six inches (6") of soil, whichever is shallower, including but not limited to excavations. (w) "Land fill" means any human activity depositing soil or other earth materials. (x) "Manual of standards" means a compilation of technical standards and design specifications published by the Association of Bay Area Governments. (y) "Permittee" means the applicant in whose name a valid permit is duly issued pursuant to this chapter and his/her agents, employees, and others acting under his/her direction. (z) "Sediment" means earth material deposited by water or wind. (aa) "Site" means any lot or parcel of land, or contiguous combination under the same ownership where grading is performed or permitted. (bb) "Slope" means an inclined ground surface, the inclination of which is expressed as a ratio of horizontal distance to vertical distance. (cc) "Soil" means naturally occurring superficial deposits overlying bedrock. (dd) "Soils engineer" means a professional civil engineer experienced and knowledgeable in the practice of soils engineering and licensed by the state of California for practice in that field. NOT YET APPROVED 170203 th 0140175 4 February 2, 2017 (ee) "Soils engineering" means the application of the principles of soils mechanics in the investigation, evaluation, and design of civil works involving the use of earth materials and the inspection and/or testing of the construction thereof. (ff) “Temporary construction-related dewatering” means temporary pumping of groundwater to facilitate construction of underground structures such as basements and garages. (ffgg) "Wet season" means the period from October 1 to April 15. SECTION 3. Section 16.28.060 of Chapter 16.28 (Grading and Erosion and Sediment Control) of the Palo Alto Municipal Code is hereby amended to read as follows: 16.28.060 Permit required. No person may grade, fill, excavate, store, or dispose of soil and earth materials or perform any other land-disturbing or land-filling activity, or engage in temporary construction- related dewatering, without first obtaining a permit as set forth in this chapter, except when the activity is performed in accordance with one or more of the general or specific exemptions set forth in Sections 16.28.070 and 16.28.080. Exemption from the requirement to obtain a permit does not provide relief from the requirement to conduct all grading activities in conformance with the general grading requirements contained in Sections 16.28.270 through 16.28.340 of this chapter. SECTION 4. Section 16.28.070 of Chapter 16.28 (Grading and Erosion and Sediment Control) of the Palo Alto Municipal Code is hereby amended to read as follows: 16.28.070 General exemptions. All land-disturbing or land-filling activities or soil storage, and all temporary construction-related dewatering, shall be undertaken in a manner designed to minimize surface runoff, erosion, and sedimentation and to safeguard life, limb, property, and the public welfare. A person performing such activities need not apply for a permit pursuant to this chapter, if all the following criteria are met: (a) The site upon which land area is to be disturbed or filled is 10,000 square feet or less, except where temporary construction-related dewatering will be required. (b) Natural and finished slopes are flatter than 10:1. (c) Volume of soil or earth materials stored is 100 cubic yards or less. (d) Rainwater runoff is diverted, either during or after construction, from an area smaller than 5,000 square feet. NOT YET APPROVED 170203 th 0140175 5 February 2, 2017 (e) An impervious surface, if any, of less than 5,000 square feet is created. (f) No drainageway is blocked or has its storm water carrying capacities or characteristics modified. (g) The activity does not take place within 100 feet by horizontal measurement from the top of the bank of a watercourse, the mean high watermark (line of vegetation) of a body of water or the boundary of the wetlands associated with a watercourse or water body, whichever distance is greater. SECTION 5. Section 16.28.155 is hereby added to Chapter 16.28 (Grading and Erosion and Sediment Control) to read as follows: 16.28.155 Additional Requirements for Temporary Construction-Related Dewatering (a) In addition to applicable requirements in this Chapter 16.28, where temporary construction-related dewatering will be required, applicants also shall: (1) Submit a dewatering geotechnical study conforming to regulations issued by the City Engineer, adhere to its findings, and make modifications as directed by the City Engineer. (2) Install and maintain at least one fill station meeting standards established by the City Engineer. (3) With the consent of neighboring property owners, water trees and other vegetation on adjacent properties. (4) Verify the anticipated drawdown curve in the dewatering geotechnical study with a pump test performed on monitoring wells installed on the project site, as specified by the City Engineer. (5) Prior to pumping, survey and mark elevations on structures on adjacent parcels. (6) Submit periodic measurements and reports as required by the City Engineer. (7) Continuously comply with all permit conditions, performance measures, regulations and requirements established by the City Engineer. Promptly implement corrective actions identified by the City to address any compliance issues. (b) Prior to pouring a basement slab, groundwater may be pumped no deeper than three feet below the depth of the slab, measured at the center. After the slab is poured, groundwater may be pumped no deeper than one foot below the center. NOT YET APPROVED 170203 th 0140175 6 February 2, 2017 (c) Dewatering may not be conducted before April 1 or after October 31. Pumping permits for single family residential basements are limited to ten (10) weeks, with an additional two (2) week start-up period. At the end of the start-up period, the applicant must demonstrate compliance with all performance and water quality standards established by the City Engineer. The City Engineer may adopt a regulation specifying time limitations for commercial property pumping. (d) The City Engineer is authorized to establish and from time to time revise regulations to implement this Section and advance the goals of minimizing temporary construction-related dewatering and reducing its impacts. (e) Where pumping is continuously limited to no more than 30 gallons per minute, the City Engineer is authorized to waive requirements for a geotechnical study, verification procedures and pump time limitations. SECTION 6. Severability. If any provision, clause, sentence or paragraph of this ordinance, or the application to any person or circumstances, shall be held invalid, such invalidity shall not affect the other provisions of this Ordinance which can be given effect without the invalid provision or application and, to this end, the provisions of this Ordinance are hereby declared to be severable. SECTION 7. CEQA. The City Council finds and determines that this Ordinance is not a project within the meaning of section 15378 of the California Environmental Quality Act (“CEQA”) because it has no potential for resulting in physical change in the environment, either directly or ultimately. In the event that this Ordinance is found to be a project under CEQA, it is subject to the CEQA exemption contained in CEQA Guidelines section 15061(b)(3) because it can be seen with certainty to have no possibility of a significant effect on the environment in that this Ordinance simply clarifies existing local regulations. / / / / / / / / / / / / / / / / NOT YET APPROVED 170203 th 0140175 7 February 2, 2017 SECTION 8. Effective Date. This ordinance shall be effective on the thirty-first date after the date of its adoption. INTRODUCED: PASSED: AYES: NOES: ABSTENTIONS: ABSENT: ATTEST: APPROVED: ______________________________ ____________________________ City Clerk Mayor APPROVED AS TO FORM: ____________________________ City Manager ______________________________ City Attorney ____________________________ Director of Public Works/ City Engineer Attachment B Construction Groundwater Pumping Second Phase: Potential Calendar Year (CY) 2018 Construction Season Changes: 1. Determine whether existing wells from other sites/purposes can be used to satisfy the groundwater monitoring requirements; utilize such existing wells if practical. 2. Limit the groundwater level drawdown at the closest off-site adjacent structure to 3’. 3. Determine whether existing wells can be used to satisfy the requirement in (c) above; if not, install a new monitoring well. 4. Potentially, require the use of groundwater cut-off walls, or other construction methods, which will limit the pumping (following a two week start-up period) to 30 gallons per minute (gpm). City of Palo Alto (ID # 6478) City Council Staff Report Report Type: Action Items Meeting Date: 2/1/2016 City of Palo Alto Page 1 Summary Title: Approval of 2016 Basement Construction Dewatering Program Changes Title: Approval of 2016 Basement Construction Dewatering Program Changes and Other Related Issues From: City Manager Lead Department: Public Works Recommendation Staff recommends that City Council approve the five “Group 1” basement construction dewatering program changes for the 2016 construction season listed below and provide staff direction for returning to the Policy and Services Committee with updates and discussion of other work items related to groundwater and basement construction dewatering issues. This is based on a unanimous recommendation from the Policy and Services Committee to forward the program changes to the full Council as an action item. Executive Summary The Policy and Services Committee discussed staff recommendations on investigating program enhancements for basement construction dewatering at its December 1 and 15, 2015 meetings (Attachment A: #6268 and #6450). The discussion items were organized into three groups: Group 1, a set of potential new requirements for the 2016 construction season which are being brought to the Council for approval with a goal of swift implementation; Group 2, ongoing and potential future work for gathering information about the groundwater basin; and Group 3, a list of additional (some big) ideas generated at the December 1, 2015 Policy and Services meeting. With respect to Group 3, staff will return to the Committee in the first half of 2016 with questions that should be considered part of a further discussion with the Committee about whether to recommend Council consideration and potential direction on any of these. The potential scope of the City of Palo Alto Page 2 items could make this a major new initiative and will require careful assessment of the resources necessary to support them, in the context of other work priorities. Staff has further refined the Group 1 items for approval. Staff is keeping new applicants advised of the concepts under consideration to avoid any surprises at the end of the permitting process. The Policy and Services Committee unanimously approved the Group 1 recommendations, but asked that they be an Action item for full Council, so that they could be discussed. Background Over the years, basement construction groundwater pumping has generated public concern in Palo Alto. The ongoing drought and mandated water restrictions this past summer escalated those concerns. Public concerns relate to the apparent wasting of water by discharging to storm drains, potential impacts on groundwater elevation and flow volume, as well as potential effects on neighboring properties, such as subsidence and cracks, and effects on trees and other landscaping. Basement construction is often required for non-residential, mixed use and multifamily residential buildings, particularly if underground parking is included in the proposal. Additionally, the high value of land and housing in Palo Alto translates into residential property owners seeking to increase their single family homes by constructing basements. Basements constructed in R-1 districts do not count towards allowable square footage (regulated by floor area ratio) and can be quite large when located underneath the entire building footprint (PAMC Section 18.12.090). Basement construction groundwater pumping occurs when a basement is constructed in areas of shallow groundwater, typically in the neighborhoods closer to the bay or near former creek beds. Perimeter wells are established to draw down the groundwater allowing for construction of the basement. Dewatering continues until enough of the house has been constructed to keep the basement in place. The City of Palo Alto has long regulated several aspects of basement groundwater pumping for both residential and commercial sites (see Attachment A for a detailed discussion). Additional correspondence received is attached (Attachment C). Discussion City of Palo Alto Page 3 At the December 15, 2015 Policy and Services Committee meeting, Committee members voted unanimously to forward Group 1 items to Council for approval as soon as possible. Staff has further developed the Group 1 activities and is seeking approval of the following new requirements: Group 1: New Basement Dewatering Submittal, Fill Station and Groundwater Use Requirements 1. Encourage greater fill station use through public outreach and enhanced signage. This is a contractor requirement and City activity and includes continuing to use door hangers, Neighborhood Preparedness Coordinators and the City’s website. 2. City staff to strengthen outreach on the water cycle and value of fresh water flows to storm drains, creeks and bay. 3. Add additional requirements to Groundwater Use Plans that are already required for dewatering. These additional requirements include maximizing on-site water reuse (e.g. watering on-site and nearby vegetation), at least one day per week water truck hauling service for neighbor and City landscaping, and piping to nearby parks or major users where feasible. 4. Expand fill station specifications that must be implemented by contractors to address water pressure issues from multiple concurrent users, including separate pumps for neighbors where needed and sidewalk bridges for hoses to reduce tripping hazards. City inspectors will inspect fill stations to ensure compliance with specifications. 5. Require Grading Permit applicants anticipated to or encountering groundwater to submit a statement of the effects of the proposed groundwater pumping on nearby buildings, infrastructure, trees, or landscaping. Under Section 16.28 of the Palo Alto Municipal Code, the City Engineer is authorized to require augmentation of the Soils and Geotechnical Reports as part of the Grading Permit application. The statement of dewatering effects must be stamped by a California licensed Geotechnical Engineer and submitted to the City. This report will be made available for public review. The City of Palo Alto Page 4 Geotechnical Engineer is to be separate from and independent of the project’s design engineer(s). The detailed requirements are described in Attachment B: Draft Basement Construction Dewatering Requirements, and in anticipation of the City Council’s potential action, on January 14th development project owners/applicants were notified of these pending requirements and advised to begin assembling the required information. Staff recommends approval of these new requirements which will be incorporated into the planning and building permit process on a pilot basis for the 2016 construction season. Pending further experience with dewatering requirements and consultation with stakeholders, staff will evaluate returning to Council with a proposed ordinance codifying specific requirements and enforcement measures. Group 2: Gathering of Groundwater Information and Plans by Palo Alto and its Partner Agencies As discussed at the Policy and Services Committee, staff will continue working with the Santa Clara Valley Water District (Water District) in an already ongoing effort on developing a further understanding of the North County groundwater systems, impacts of groundwater pumping, and opportunities for enhanced groundwater recharge. A Water District key mission is to manage the County’s groundwater; therefore, staff will collaborate closely with the Water District, and the new Council-level Recycled Water Committee. This collaboration may also include working with San Mateo County and its cities to ensure coordination with their development of a groundwater strategic plan. Council may also wish to refer review of this future work to the City’s Utilities Advisory Commission. Staff will provide an update on the work plan for this effort to the Policy and Services Committee in the first quarter of 2016. Group 3: Further Ideas Brought Forward by Individual Policy & Services Committee Members Individual Policy and Services Committee members articulated additional ideas and suggestions. Some of these ideas are multifaceted and complex, and will require sustained effort from staff and assistance from consultants over multiple City of Palo Alto Page 5 years. The Committee and City Council will need to evaluate priorities and timelines, including the potential that significant new assignments may delay other projects currently underway. Staff will prepare a report for the Policy and Services Committee in the first half of 2016 to discuss these matters and the development of a potential recommendation to Council to direct additional work in one or more of these areas: 1. Charging for discharge of groundwater. The current fee for dewatering to the storm drain system is $80 per month. This effort would consider increased fees to charge for the use of the City’s storm drain system and staff time to manage the dewatering requirements. Committee members suggested exploring whether the fee that the Santa Clara Valley Water District charges for groundwater pumping would be an appropriate baseline. 2. Developing dewatering requirements tailored to drought situation. 3. Developing approaches to ensure that multiple basement pumping is not happening in close proximity (distance and time), and instead is spaced out, essentially allowing only a limited number of basement construction dewatering in one area. 4. Addressing potential damage from dewatering through bonds or insurance. 5. Further study of all pumping activities in the City, including private wells, City Hall garage, Oregon Underpass and other underpasses. 6. Review of basement building and zoning code issues, including FAR adjustments for basements and not allowing two-story basements, or any basement, in areas with shallow groundwater. (Note: Staff’s initial reaction is that utilizing zoning to implement these requirements may be quite difficult because groundwater depth can vary significantly from block to block) 7. Review of impacts of multiple basements on soil absorption and/or the creation of barriers to groundwater flow. 8. Investigation of costs of other construction methods that do not require City of Palo Alto Page 6 dewatering, or as much dewatering. 9. Investigate whether Palo Alto should assume a groundwater management leadership role for the North County area. (Including consideration of staff time and cost implications.) 10. In addition, Committee members were interested in how increased use of permeable surfaces may assist with groundwater recharge. (Note: City staff can provide an update on the new stormwater permit requirements for a Green Infrastructure Plan which will require more infiltration of stormwater into the ground rather than discharging it through storm drains via both public and private projects.) Group 2 is part of an ongoing effort and the Committee and City Council will be updated periodically. Group 3 activities will be brought to the Committee /Council for discussion and direction to study them; staff is making no estimate on when they could be implemented. Resource Impact Testing and refining the suggested measures to improve the dewatering program or any other measures suggested by the Committee will require significant staff time that is currently allocated to other projects. For the homeowner, these measures may increase basement construction project costs. As mentioned in earlier parts of this report, Group 1 recommendations have sent staff scurrying to develop final recommendations for action and are likely to require additional ordinance language to be created and brought back to the City Council for approval. Group 3 suggestions are varied and require thoughtful review and potentially large costs. In every case, consideration of our ability to fund and support or absorb the efforts will be required. Environmental Review The Group 1 suggested program enhancements are minor modifications to an existing regulatory program designed to be protective of the environment. They would be covered by the general rule that California Environmental Quality Act (CEQA) does not apply where there is no possibility an action could have a significant effect on the environment (State CEQA Guidelines Section City of Palo Alto Page 7 15601(b)(3)). Group 3 requirements will be evaluated and appropriate environmental review prepared as specific proposals are developed. Attachments:  Attachment A - Policy and Services December Staff Reports (PDF)  Attachment B - Construction Dewatering Study Requirements (DOCX)  Attachment C - Correspondence (PDF) City of Palo Alto (ID # 6268) Policy and Services Committee Staff Report Report Type: Agenda Items Meeting Date: 12/1/2015 City of Palo Alto Page 1 Summary Title: Basement Construction Dewatering Title: Consider Tentative Staff Recommendations On Further Requirements for Basement Construction Dewatering Program for 2016 From: City Manager Lead Department: Public Works Recommendation Staff recommends that the Policy & Services Committee direct staff to continue considering five program enhancements, presented in the “Discussion” section below, on basement construction dewatering; and implement those found to be feasible and practical by Spring 2016 to address public concerns raised during the summer of 2015. Executive Summary Over the years, basement construction groundwater pumping has generated public concern in Palo Alto; the ongoing drought and mandated water restrictions this past summer escalating those concerns. Public concerns relate to the apparent wasting of water by discharging to storm drains, potential impacts on groundwater elevation and flow volume, as well as potential impacts on neighboring properties, such as subsidence and cracks, and impacts on trees and other landscaping. In response to these concerns, staff has developed potential enhancements to the City’s existing regulations regarding construction dewatering for review and discussion. Background Basement construction is often required for non-residential, mixed use and multifamily residential buildings, particularly if underground parking is included in Attachment A: Policy and Services December Staff Reports City of Palo Alto Page 2 the proposal.1 Additionally, the high value of land and housing in Palo Alto translates into residential property owners seeking to increase their single family homes by constructing basements. Basements constructed in R-1 districts do not count towards allowable square footage (regulated by floor area ratio) and can be quite large when located underneath the entire building footprint (PAMC Section 18.12.090). In 2015, 13 residential sites were conducting basement construction groundwater pumping, with 12 of these sites constructing a basement as well as a second story. Basement construction groundwater pumping occurs when a basement is constructed in areas of shallow groundwater, typically in the neighborhoods closer to the bay or near former creek beds. Perimeter wells are established to draw down the groundwater allowing for construction of the basement. Dewatering continues until enough of the house has been constructed to keep the basement in place. The groundwater being pumped is not potable (i.e. drinkable). The Santa Clara Valley Water District regulates the groundwater basin in Santa Clara County, but does not regulate incidental pumping associated with basement dewatering. Summary of Current Regulations The City of Palo Alto has long regulated several aspects of basement groundwater pumping for both residential and commercial sites. Geotechnical investigations are required for basement construction and dewatering permits must be obtained when groundwater is likely to be encountered and dewatering needed. The permit is used, in part, to prevent pumping from October to April ensuring adequate storm drain system capacity during winter months. City of Palo Alto staff verifies that construction dewatering meets requirements for pH and sediment prior to allowing discharge to the storm drain system, meeting State of California stormwater regulations. Unlike most Bay Area cities, Palo Alto does not allow drains around basement foundations, collecting water and pumping to the storm drain continuously; instead basements must be constructed to be waterproof. 1 In commercial and multi-family zones, basements used for parking are generally not counted towards allowable floor area, but basement space containing usable space is. This report focuses on basements in R-1 neighborhoods which have been the subject of most of the community concern. City of Palo Alto Page 3 In 2008, the Planning and Transportation Commission held hearings on the dewatering issue and a literature review prepared by EIP Associates was presented (Attachment A). In Summer 2014, the City’s Public Works Department (PWD) piloted a truck fill station at a dewatering site to address public concern regarding the apparent wasting of pumped water to storm drains during the drought. Following the success of this first truck fill station, all basement groundwater pumping sites, except those located in known groundwater contamination areas, were required to install truck fill stations based on PWD specifications (Attachment B). The stations accommodate large diameter and garden hoses as well as bucket filling. Outreach includes dewatering sites published and mapped on the City website (http://www.cityofpaloalto.org/gov/depts/pwd/pollution/recycled_n_other_non _potable_water.asp), informational door hangers provided to contractors for distribution to neighbors of the construction dewatering site (Attachment C), and a Frequently Asked Questions document (Attachment D). Usage tracked with log sheets showed some sites used extensively by neighboring properties, while others saw little use. The City’s water truck utilized dewatering sites for tree and median irrigation. During the summer 2015 staff met with contractors to discuss additional ideas to address public concerns. Contractors advised staff of the uniqueness of Palo Alto in imposing standards on dewatering and requiring use of the pumped groundwater, believing the requirements increase pumping duration and project cost. One contractor stressed users could be injured at the fill stations, leading to potential liability. Other than increasing public outreach, no new solutions to decrease pumping or increase utilization of groundwater were identified. Discussion In Summer 2015, sites beginning the permit process were required to develop a Use Plan to maximize the use of the pumped groundwater. Additional requirements suggested by members of the public include a moratorium on basements until further study is performed, more detailed review of basement construction projects, minimizing pumping by using other methods for dewatering or increasing weight on basement slab, requiring use of all the water being pumped, payment for water pumped and directing water to the sanitary City of Palo Alto Page 4 sewer. See Attachment E for correspondence from the public and Attachment F for a petition submitted regarding the basement construction moratorium. Using adaptive management based on learnings from this past summer, staff is proposing to investigate the following program enhancements for basement dewatering in 2016: 1. Encouraging greater fill station use by distributing more door-hangers and enlisting other public outreach regarding dewatering, fill stations and trees. This will be a contractor requirement and City activity. 2. Strengthening outreach on the water cycle and value of fresh water flows to storm drains, creeks and bay. 3. Refining requirements for contractor Use Plans, including maximizing on- site water use, one day per week water truck hauling service for neighbor and City landscaping and piping to nearby parks or major users where feasible. Contractors will be responsible for implementation of Use Plans. 4. Expanding fill station specifications to address water pressure issues resulting from multiple concurrent users, including separate pumps for neighbors where needed and sidewalk bridges for hoses to reduce tripping hazards. Contractors will be responsible for implementation. 5. Broadening the City’s Basement Pumping Guidelines to specifically require a determination of impacts of groundwater pumping on adjacent buildings, infrastructure and trees or landscaping. Applicants would determine the approximate location of the temporary groundwater cone of depression caused by pumping. Avoidance measures would be required if impacts are anticipated. Urban Forestry staff may develop guidelines for avoidance measures such as soil enhancement and supplemental watering (by project applicant) of neighboring landscaping. Additional measures could include adjusting the location, depth or duration of pumping or altering construction methods. In addition, staff will request assistance from the Santa Clara Valley Water District to continue to evaluate any potential effects of basement pumping on deep City of Palo Alto Page 5 groundwater levels, particularly related to the City of Palo Alto emergency wells. This issue is partially addressed in a previously provided 2003 report to the City by Carollo Engineers (Attachment G). If additional actions by the City are needed, they will be forwarded to the Policy and Services Committee prior to the 2016 construction season, along with the finalization of the above five recommendations. Resource Impact Testing and refining the suggested measures to improve the dewatering program or any other measures suggested by the Committee will require staff time that is currently allocated elsewhere. These measures may increase basement construction project costs. Staff is seeking approval of Staff exploration of the named activities. One of the elements to be explored is the amount of staff time needed for implementation, and whether the additional time can be absorbed into existing staffing levels. While Staff time is not expected to be large, Staff will be reporting back to the Committee on this issue. Environmental Review The suggested program enhancements are minor modifications to an existing regulatory program designed to be protective of the environment. They would be covered by the general rule that California Environmental Quality Act (CEQA) does not apply where there is no possibility an action could have a significant effect on the environment (State CEQA Guidelines Section 15601(b)(3). Attachments:  Attachment A: 2008 Planning and Transportation Division Study Session Regarding Basement Construction Impacts (PDF)  Attachment B: New Aquifer Filling Station Specifications (PDF)  Attachment C: Doorhanger (PDF)  Attachment D: Groundwater Pumping from Building Sites FAQ (PDF)  Attachment E: Correspondence (PDF)  Attachment F: Basement Moratorium Petition (PDF)  Attachment G: Groundwater_Supply Report (PDF) to address zoning criteria for light wells and below grade patios, but the pertinent code section is provided and some of the issues may affect those provisions. DISCUSSION The discussion below summarizes recent basement construction statistics, the issues addressed in the Public Works memo, the existing Public Works dewatering policy, potential impacts on neighboring properties, and the use of concrete in basement construction and its implications for the City's Green Building program. A few options for addressing public concerns are provided at the end of the section. Recent Basement Construction The City's Building Division reports that there were permits for 65 new single family residential basements issued over the past 2 years (through June 30, 2008). In that timeframe, there were a total of 181 new single family home permits, excluding the detached condos for Sterling Park (96 units). Ten (10) of the basements (of the total 65) were constructed for major renovations/rebuilds. Basement construction has increased as compared to prior years, with an average of about 22 bas.ement permits issued from 2001-2004. The Public Works Department estimates that, of the total number of permits for basements in recent years, approximately 5 per year require dewatering permits. In calendar year 2008 thus far, the Department has issued 3 dewatering permits, and does not anticipate issuing any others, given the proximity to the wet weather season. Attachment G provides a map of the depth of groundwater in Palo Alto, as mapped by the Santa Clara Valley Water District. June 9 Public Works Informational Memo The June 9, 2008 Informational Memo from Public Works (Attachment A) addresses many issues raised by the Council, Commission, and the public, including discharge volume of dewatering, pump noise, water table impacts, subsidence, tree impacts, contaminated groundwater migration, discharge of groundwater after basement construction, basement excavation, and storm drain capacity. In some areas of technical impact, such as water table and subsidence impacts, the memo refers to a study prepared by EIP Associates, Inc. in 2004 (Attachment D), which staff feels adequately addresses those specific concerns. Other concerns regarding pump noise, contaminated groundwater contamination, and discharge of groundwater after basement construction, are addressed in the Council memo but not discussed further here. The discussions below focus on the key issues of discharge volumes and dewatering policy, the impacts of basement excavation on neighboring sites, and the green building implications of basement construction. Discharge Volumes The Public Works Department's "Basement Excavation Dewatering and Basement Drainage Rules" (Attachment B) require a dewatering plan and permit for each site where dewatering during basement construction is proposed. Groundwater levels must be identified in a geotechnical report prior to permit review. Drawdown wells are typically installed around the perimeter of the excavation and pump water out of the shallow aquifer to draw down the level of the groundwater so the basement can be constructed without water filling the excavation. Public Works estimates that draw down well systems for dewatering during basement construction can pump approximately 30-50 gallons per minute of water non-stop for 3-6 months or more while City of Palo Alto Page2 the basement is constructed. The rules now have been revised to limit dewatering to the months of April through October. The total volume of water pumped into the storm drain system from a dewatering operation is substantial, typically a few million gallons. However, the groundwater level is re-established rapidly after dewatering ceases and the discharged water ultimately remains within the water regime and may replenish aquifers downstream or may flow to a creek or the Bay. Nevertheless, some water is surely lost in the process and the storm drain system is burdened by the additional flow. The Public Works Department's Basement Exterior Drainage Policy (Attachment C), last revised October 1, 2006, prohibits the use of perforated pipe systems for basement drainage and requires that all new basements be designed so that ongoing discharge after construction is not required (with limited exceptions for basement-level exterior spaces). The key issue for Commission discussion is whether it is appropriate to further limit or prohibit basement construction where dewatering is required. Impacts on Neighboring Properties Another set of concerns about basement construction relates to potential impacts to neighboring properties, including subsidence, effects on trees, and site stability. • Site stability-Residents have reported concerns about the proximity ofbasement excavation to their property line, which might result in erosion or undermining of the property or nearby buildings. Various excavation shoring restrictions exist to protect neighboring sites, and shoring plans are required by the Building Division. The Zoning Code only allows basements below the main structure, so setbacks should be met, but light wells are permitted to encroach up to 3 feet from a side property line (for a distance of not more than 15 feet), and excavation for the basement wall may then extend to the property line. Attachment F outlines the zoning code provisions for basements in the R-1 zone district. • Trees -Tree impacts on the subject property or an adjacent site could occur from either excavation damage to roots or from dewatering to a point where the roots dry out. The Planning Arborist, however, reviews all projects to determine whether basements would adversely impact an adjacent tree's root system, and plans would need to be revised if impacts are identified. The Zoning Code requires that basement design would not adversely impact any mature trees. The Planning Arborist has also noted that water sources for most trees' roots are not as deep as the groundwater table. • Subsidence -Staff believes that subsidence impacts, if any, are negligible from dewatering, as the water table quickly returns to pre-dewatering levels and the duration of dewatering is not long enough for soils to compress. Staff is aware of no demonstrated subsidence impacts from basement construction dewatering, though some residents have maintained that such an impact has occurred. The EIP study and contact with USGS have also indicated negligible impact. The key issue for Commission discussion is whether some change in policy or codes, such as a minimum setback for excavation, would better protect neighboring properties without unduly infringing on the potential for property owners to construct basements. City of Palo Alto Page3 Green Building Regulations and Implications of Basement Construction Basement construction has been identified as a "green building" issue due to the extensive amount of energy required to produce the concrete used for basements. Concrete creates more than 5 percent of the world's C02 emissions, at a rate of about 400 pounds of C02 for each cubic yard of concrete (3 ,900 pounds). The cement component of concrete (7-15 % ) is the major source of greenhouse gas emissions, and about 0.9 pound of C02 is created per pound of cement produced, according to the Portland Cement Association. A second sustainability issue is the amount of water discharged during dewatering during basement construction (discussed above). The City's Green Building regulations (Attachment E) became effective on July 3, 2008. The regulations include requirements to comply with green point rating systems for both nonresidential (Table A) and residential (Table B) development. The definition of "square footage" includes basement square footage, and the green points required for residential development increase with each 70 additional square feet of house size. Thus, the ordinance does not directly limit basement construction, but does require compensation in the form of increased green point rating for a home with a basement. It should also be noted, however, that due to the insulating qualities of the surrounding earth, basements are often more energy efficient than above grade floor space. For the Commission's information, Attachment K is an article that outlines work currently underway by a Stanford professor to produce a "green" cement that would not only eliminate C02 emissions from cement production, but could also use C02 emitted from other sources, reducing those gases as well. A ways off, perhaps, but a potential solution to the adverse impacts of concrete use in basements. The key issue for the Commission is whether there is a basis for either limiting basement construction or requiring further increases in green points criteria for basement construction to minimize the carbon emissions impacts of basements. POTENTIAL OPTIONS Staff believes that the City's review policies generally protect neighboring properties from deleterious effects of basement dewatering and that dewatering does not have substantial effects on groundwater or result in the discharge of contaminated groundwater. However, water discharge from dewatering can be substantial and there may be opportunities for the City to enact policies or regulations to further minimize the loss of water from local sites as an enhanced sustainability effort. Similarly, the City's Green Building regulations already require compensation for basement construction in the form of additional green building measures to achieve the stipulated point totals, but there may be revisions that would provide further green building benefits where basements are constructed or to encourage retention of existing basements in commercial areas. Some of the options available to the City may include, but are not limited to: 1. Continuing to permit basements, with continued staff analysis of technical data and impacts. 2. Prohibiting basement excavation within 3 feet of a low density residential property line. City of Palo Alto Page4 3. Limiting basement construction based on the amount of water to be discharged or further limit the timeframe for basement dewatering. 4. Modifying green building requirements to double basement square footage to determine the number of GreenPoint Rated points required, and/ or allowing reductions for the use of basement construction materials that reduce the embedded energy of concrete. 5. Allowing existing basements for nonresidential properties to be excluded from floor area calculations if restricted to non-habitable uses, even ifthe basement meets Building Code requirements for habitable space. Subsequent to comments by the Commission, staff will return with specific recommendations for policy or code changes to address basement issues. The Commission would then forward these changes to Council for review and approval. ENVIRONMENTAL REVIEW No environmental review is required for a study session. The level of environmental review required, if any, for potential code or policy actions will be determined once those actions are identified. ATTACHMENTS A. June 9, 2008 "Basement Construction and Dewatering Impacts" Informational Memo to City Council from Public Works Department B. Public Works "Basement Excavation Dewatering and Basement Drainage Rules" C. Public Works "Basement Exterior Drainage Policy," dated October 1, 2006 D. "New Basement Construction and the Groundwater Regime in Palo Alto," Technical Memorandum prepared by EIP Associates, Inc., 2004 E. Green Building Tables for Residential and Nonresidential Development F. Section 18.12.090 of the Zoning Ordinance re: Basements in R-1 District G. Map of Depth to First Water, Santa Clara Valley Water District, October 15, 2003 H. May 8, 2008 E-mail from Steve Broadbent I. July 19, 2008 E-mail from David Stonestrom J. April 22, 2008 E-mail from Jody Davidson K. "Green Cement May Set C02 Fate in Concrete." San Francisco Chronicle. September 2, 2008. COURTESY COPIES Architectural Review Board Jody Davidson Steve Broadbent David Stonestrom John Northway Bob Morris, Public Works REVIEWED BY: Julie Caporgno, Chief Planning and Transportation Official DEPARTMENT/DIVISION HEAD APPROVAL: __ ~----·-~--~---· ___ _ City of Palo Alto Curtis Williams Interim Director Page5 To assist Council in understanding the differences between shallow and deep aquifers _(described ·more completely in EIP's·attached report), staff provides the following descriptions. Shallow aquifers are formed by rain seeping through the ground and pooling close to the ground surface. The top surface of the shallow aquifer is called the water table and is typically 10-30 feet below the ground surface in most areas of Palo Alto other than the hills. This is the aquifer that basement excavations may extend into, necessitating dewatering. Shallow aquifer water is nonpotable. as it does not meet drinking water standards. · Deep aquifers are separated from the shallow aquifers by impermeable sediment layers, like rock or clay, called aquicludes that prevent shallow aquifer water from reaching the deep aquifers. In Palo Alto, the deep aquifers are approximately 200 feet below the ground surface. Dewatering basement excavations has virtually no effect on the deep aquifers . . Certain layers of permeable sediment, like sand or gravel, may trap and hold pockets of groundwater temporarily between shallow and deep aquifers, but these are typically not affected by basement dewatering operations. . . Below is a brief summary of the above research organized by community key concerns. Discharge Volume . A soils report is required for all projects with basements or underground garages. This report determines the depth to the shallow aquifer below the ground surface. If a contractor believes the excavation will go into the groundwater, they will typically submit a drawdown well dewatering plan to Public Works. Drawdown wells are· typically installed around the perimeter of the excavation and pump water out of the shallow aquifer to draw down the level of the groundwater so the basement can be constructed without groundwater filling the excavation. These drawdown well systems pump approximately 30-50 gallons per minute into the storm drain system non~stop for 3-6 months while the contractor constructs the basement. The volume of water pumped into the storm ·drain system from a drawdown well dewatering operation is substantial, typically a few million gallons. It could be used as landscaping water, but it is too large a volume for individual use and too impractical to capture and reuse for other use. The water pumped out of the ground is discharged into the storm drains, which typically discharge into the creeks. San Francisquito Creek is a losing creek, meaning that water is lost by seeping through the creek bed and into the shallow aquifers. So, in this case, water pumped out of the shallow aquifers is added back to it. For water pumped into lined creeks, the water flows to the bay and is lost to the aquifer. The volume of groundwater pumped out of an excavation site is a small fraction of the . total volume of the aquifer and does not deplete or lower the aquifer, except, of. course, in the immediate vicinity of the excavation. The USGS reports that due to natural (rain) and manmade (irrigation, leaking sewer pipes, and the SCVWD's groundwater recharge program) methods, more water is recharged into the shallow aquifers than is pumped out of it by all pumping in the Santa Clara Valley. The EIP report also confirmed that the water table is only drawn down CMR:266:08 Page 2of5 locally (within tens of feet of the excavation) and· reestablishes itself quickly after dewatering ceases. Therefore,the cumulative effect ofdewatering on the shallow aquifers is negligible. Pump Noise Dewatering pumps can make excessive noise if installed improperly, and this is a concern for neighboring residents since the pumps run 24 hours a day. Public Works is tightening the requirements for pump operation to eliminate this problem. Water Table Impacts While the City currently prohibits basements in flood zones, there is no blanket prohibition against construction in areas with shallow aquifers. Basements are not typically constructed so deep that they actually go into the water table, but they do ·in some cases. In other cases, the water table might rise up, as at the end of a particularly wet winter, and surround a basement. However, in these cases, the water table level and the flow of the groundwater are not changed due to the presence of basements, as reported by EIP. Subsidence Land settlement, or·subsidence, caused by temporary (such as 6 months) construction dewatering is negligible, as reported by EIP and USGS. For subsidence to occur, dewatering needs to occur over a number of years. Tree Impacts Relative to Water Table Changes The Planning ·Division arborist reports that in most of the developed areas · of Palo Alto the preponderance of absorbing tree roots are not . found in lower soil horizon levels below seven feet Therefore, the majority of temporary dewatering projects are not expected to impact trees. If a tree's roots are however deep enough and have been determined, on the basis of a certified arborist report or other ·qualified assessment, to be dependent· on the water table, theri the mitigation would be for the , contractor to provide separate irrigation for the tree( s) during the dewatering period. Contaminated Groundwater Migration Citizens have expressed a concern that large volumes of groundwater being pumped out of the aquifers might cause nearby contaminated groundwater plumes to migrate towards the pumping site. When an application is submitted, staff checks dewatering sites against known contaminated groundwater plume maps. If a site is within a certain proximity to a known plume, staff requires the water to . be tested for contaminants prior to and during discharge. The contractor must retain an independent testing service, test for the contaminants Public Works specifies, and submit those results to Public Works. If the water is contaminated, as it was in one case near the Stanford Research Park superfund site, it must be treated before it can be released or discharged to the sanitary sewer under permit from Public Works. The CRWQCB is drafting requirements for contractors to test groundwater discharged to the storm drain system. Staff awaits the adopted version of these requirements, scheduled for this summer, and will implement them at that time. To date, there has been no evidence that contaminated groundwater has been discharged into the storm drain system or that contaminated groundwater plumes have migrated. CMR:266:08 Page 3of5 Discharge of Groundwater after Basement Construction A few years ago, Public Works allowed the use of perforated drain pipes to be installed behind basement walls and under basement slabs when the geotechnical engineer reported that groundwater would not ri.se to the level of. these pipes. The pipes are installed . to .capture rainwater that filters through the ground and collects behind basement walls in order to minimize the chance of the water leaking through the walls. The pipes drain, to a sump where a pump then .. pumps the water to the street gutter.· Unfortunately, after some wet. winters, groundwater did rise up to these pipes and was then pumped c~mtinuously into the street gutter for long periods of time, creating a number of public nuisance and safety concerns. Accordingly, Public Works adopted a policy two years ago that prohibits the use of perforated drain pipes· for basements in areas of the City with relatively high groundwater (east of Foothill Expressway) to eliminate •these potential nuisances. Public Works also re.commends that applicants for. new basement projects retain a waterproofing consultant to ensure tile basement does riot leak. . Older basements that were permitted with perforated drain pipes still may occasionally discharge groundwater into the street gutter. Public Works addresses these cases by working with the homeowners to eliminate the discharge, typically accomplished by having the homeowner raise the pump in the sump above the level of the groundwater. Basement Excavation Some residents have expressed a concern that the excavation pit for a basement comes too close to adjacent properties, potentially jeopardizing the stability of these properties. Although this strictly does not relate to dewatering, staff recognizes it as a legitimate concern. As previously mentioned, the Building Division requires geotechnical reports for all projects that involve basements or underground structures. · A standard feature of these ·reports is recommendations . artd requirements from the geotechnical engineer that specify measures . to stabilize ·the excavation during construction. The Building Division inspects all basement construction to ensure conformance with the geotechnical report and to .verify all recommended stabilization measures are implemented. In addition, Building Inspectors will require the contractor to install extra precautionary measures before work can continue. Storm Drain Capacity Staff is concerned that dewatering basement excavations. may take. up too much capacity in the City's storm drain pipes, minimizing the system's ability to accommodate storm water and potentially causing or exacerbating flooding. This is not a concern raised by citizens, nor has there been any incidents where dewatering has caused flooding, but staff is developing some guidelines for wintertime dewatering in an effort to avoid a problem. The draft guidelines currently disallow dewatering during the winter unless an exemption is granted by the Director of Public Works. CONCLUSION Staff has researched and analyzed each of the concerns about dewatering raised by citizens. Based on that research, staff believes that the cumulative effects of dewatering · basement excavations has minimal impacts on the City and that the practice should be allowed to continue. The attached EIP report essentially comes to the same conclusion. The number of residential basements permitted in the City has increased from approximately 20 a year at the start of the decade to approximately 30 a year currently. However, Public Works only issues about 5-10 CMR:266:08 Page 4 of 5 . E. JJl .. ~"fJ: !2~·· ••• ••. . ~ . . .· . . .· .,.....__ ATTACHMENT A A S S 0 .C l A T t:: S Draft Technical Memorandum: Correlation between New Basement Construction and the Groundwater Regime in Palo Alto, California lo ·Statement of the Plannjng and Transportation Commission's concerns.· At the 14 J anua1y 2004 Commission meeting, the planning staff presented a number of . . proposed changes to the existing regulation of basements in the R-1 zones. During the ensuing discussion, several Commission members expressed conc~rns about the impact of basement construction on groundwater levels and flow directions. Eight specific, interrelated issues were identified. II · 111 II II Is groundwater pumping causing or contributing to land subsidence? What are the effects of pumping for months to dewater a basement constmction site? Are basements bemg permitted in some inappropriate areas [where the water table is only a few feet below the ground surface], creating the need for continuous pumping? What groundwater effects occur if water is withdrawn from the water table and pumped into the sewers or creeks? · • . What groundwater diversion effects occur if basement walls are built along • • • creeks and/or perforate aquifers? · What are the effects on landowners adjacent to, and down gradient from, pumping sties? · What are the cumulative effects of basements on the groundwater regime? Can basement regulations be crafted to address the hydro-geology of specific building sites? · . The general concern underly.iiig these issues was expressed by Commissioner Annette Bailson: the Commission does not have the information needed to identify whether these are issues of concern, or to make informed decisions on the issues. The remainder of this technical memorandum seeks to respond to that underlying concern by provide some background information about the listed issues and about groundwater hydrology of the City relative to the constmction of basements. Page 1of7 I, 1.;'·,.':·, .. , '1 I I I . 'II''' ' 1' ·'· ,;>,, s· S 0 C l A T L S 2. Differences. between shallow (surface) and deep (confined) . groundwater aquifers. · Defining the Aquifers An aquiferis a body of geologic material, usually rock or some mixture of gravel, sand, silt and clay, that is sufficiently permeable to conduct groundwater. Some definitions include the stipulation that the body produce an economically significant flow of water before it may be considered an aquifer. For the purposes of this technical memorandum, the broader . . definition is applied to allow for easier discussion ofthe water-bearing formations underlying the City. Of the various types of aquifers, two are of particular interest in this discussion: the shallow or surface aquifer, and the deep or confined aquifer. The relative terms 'shallow' and 'deep' refer to the depth of the aquifer below the surface of the ground (usually expressed as 'number of feet bgs' in hydrology studies). A surface aquifer is so named because it is open to the surface of the ground. Rain falling on the ground surface seeps through the soil (infiltration) to some depth where it pools to form a more or less continuous body of water occupying the spaces between sediment particles or rock fragments (groundwater). The top of this body of groundwater is the water table. In the Santa Clara Plain, which forms the lowlands of Palo Alto, the water table occurs at depths of as little as ten feet below the ground surface. Being open to the surface of the ground, the surface aquifer is subject to the influertces of overlying land cover and land uses. Modern stream channels, such as the numerous reaches of San Francisquito Creek, intersect or overlie the surface aquifer, extracting water from it or adding water to it. Paving and construction create artificially impermeable surfaces that prevent local direct infiltration to the surface aquifer. Cherriical constituents in urban and agricultural runoff enter the surface aquifer through infiltration from channels or detention basins, lowering the quality of the groundwater. Leaking landfill cells, leaking underground stornge tanks, and liquid spills also contribute to the reduction of water quality in the surface aquifer. Although current stewardship has slowed water quality deterioration, the surface aquifer still cannot be used as a source of potable water. A confined aquifer is one tha.t is separated hydrologically from the overlying and underlying sediments and rock and from other aquifers. Usually the separating agent (called an aquiclude) is formed by a layer of impermeable sediment, such as clay, or by iffipermeable . rock, such as unfractured granite. The confined aquifer is not connected directly to the overlying ground surface and is separated from the surface aquifer by an aquiclude. It is, in effect, a separate hydrologic system, gaining water from_ some distant source (i.e., not local Page 2of7 '1.·,'···','',,., 11 1 I I I . :,j1•11 I ''· /\SSOC!AlES rainfall). and transmitting it to some other relatively distant discharge area. Bec.:ause the .. confined aquifer is below, and hydrologically separated from; the surface aquifer, it is, by definition, a deep aquifer, irrespective of the number of feet it is below the ground surface. Several aquifers tnay underlie each other. This is the case beneath the Santa Clara Plain where geologically recent stream-hid (alluvial) gravel, sand, silt, and clay form a sequence of · deposits nearly 1500 feet thick between the foothills of the Coast Ranges and San Francisco . . Bay. Channels of ancient rivers depositing this material have been cut off and filled by succeeding intersecting channels, which, in turn, have been buried by the deposits of more modern channels. In this way a complex series of sediment layers of unconsolidated (loose), partially consolidated (dense), and consolidated (very dense) material has been built up as the Santa Clara Plain~ The layers are discontinuous and of greater or lesser permeability, depending on their density and clay of silt content. A complicating factor in examining such a series of aquifers is that often they are not completely confined. The aquicludes separating the aquifers may not be totally impermeable (in which case· they are called aquitards). allowing water to seep from one aquifer to another. The aquifers may be connected within or outside the local area, arising from a common source or flowing to a common discharge area. The aquifers may be connected artificially through leaks in wells or along pilings passing through the aquifers. Beneath the portion of the Santa Clara Plain in Palo Alto, there is a confining clay layer that separates the surface aquifer from the deeper aquifers, but, on a regional level, this separation attenuates and, eventually, disappears farther south in San Jose .. Being separated from the surface aquifer in this part of the Santa Clara Plain, the confined aquifers beneath the City are not subject to the. direct influences previously described for land cover and land uses above the surface aquifer. To the extent that groundwater migrates from the southern part of the Santa Clara Plain groundwater basin to the northern part, the effects of similar land cover and land uses in areas toward San Jose may affect water quality in the deep aquifers beneath Palo Alto. Construction-period Dewatering Effects . In general, cons~ction-period dewatering effects are limited to the surface aquifer. This would not necessarily be the case for major high-rise construction where foundations and below-grade levels may extend 100 or more feet beneath the ground surface, increasing the . chances of encountering confined aquifers. It is, however, the case for the type of relatively shallow basement construction being considered in the Zoning Ordinance Update. . In the Santa Clara Plain portion of Palo Alto, the uppermost sequence of unconsolidated and partially consolidated alluvium is about 200 feet thick. This sequence contains the Page 3of7 ASSOCJJ,TES surface aquifer~ the base of which is the previously mentioned clay aquiclude identified by the Santa Clara Valley Water District (SCVWD) in its 2001 Groundwater Management Plan. The general direction of groundwater flow in this area is northeast toward the Bay, so the surface aquifer and_ the _deeper, confined aquifers tend to remain separated in Palo Alto until they reach the vicinity of the Bay margin. The removal of groundwater from an excavation during below-ground-level construction is necessary to provide safety for the construction workers, and .is a prerequisite for wate1proofing the building's foundation and subsurface floors. One method for accomplishing this is to dig a small pit below the base of the foundation excavation, slope the excavation so groundwater drains to the pit, and then pump the water out of the pit and into the storm drainage system .. Another method is to drill temporary wells around the building footprint and pump directly from the groundwater body to the storm drainage system until the local water table drops below the base of the excavation. In either case, groundwater flowing into the area of drawdowrt created by the dewatering process is deflected toward the base of the excavation, whence it is pumped to the storm drainage system. Groundwater beyond the influence of the dewatering process continues to flow normally. Dewatering pumping continues until the foundation and subsmface floors are completed and the excavation is filled. The amount of water deflected depends on the level of the water table, the permeability of the material adjacent to the excavation, and the length of time th~ excavation needs to be kept open and dry. An increase in any of these factors · increases the amount of water deflected. This amount is small when compared to the total volume of available groundwater directly beneath the Santa Clara Plain (see below). Because the deflection is temporary and very localized, and because groundwater levels at the sites recover rapidly once pumping has ceased, there appears to be no discernable long-tetm effect on the surface aquifer. In the areas adjacent to the site being dewatered, the water table would be lowered temporarily by the dewatering process. This effect could extend from several feet to several tens of feet beyond the excavation depending on ·the method used, the level of the water table at the time dewatering began, the permeability of the material adjacent to the excavation, and the length of time the excavation needed to be kept open and dry. The possibility exists that adjacent landscaping could be experience deterioration from reduced ·groundwater availability. Defleetion or Reduction of the rate of Groundwater Flow Although the amount of water pumped from an excavation may appear substantial as it Page 4of7 A ·s S () C l A l · E S. flows along a street to a storm drain inlet, it is small compared to the amount of groundwater directly beneath the Santa Clara Plain. The _SCVWD's current estimate is that there is more than 350,000 acre-feet of groundwater available in the Santa Clara Sub basin . . An excavation dewatering flow of 1 cubic foot per second would deflect 1.98 acre-feet of · water per day. Because groundwaterwoUld be pumped out of the excavation faster than · could flow in, the ~~teration in groundwater flow rate would be less than the rate of de\Vatering. Because t.he resultant groundwater flow ~eflectionis temporary; small, and very localized, there appears to be no discernable long.oterm effect on the ·surface aquifer. . . Because dewatering for basement construction occurs only in the uppermost portion of the surface aquifer, there would be no effect on the deep aquifer. . . .. In a typical 3-month excavation period tlie 1.98 acre:. . .feet per day dewatering flow would amount to 0.05% (one-twentieth of one percent) of the minimum known groundwater resource in the subbasin. No published information about the subbasin's water budget has been found; so any to attempt to predict how quickly the watet would be replaced through recharge would be speculative. It is known, however, that the importation of potable water and the SCVWD controlled recharge program have assisted groundwater levels in the sub basin to rise 200 feet during the last 40 years. Most of that rise has been in the surface aquifer. The implication is that the subbasin is being recharged at a rate substantially higher than the rate of withdrawal from all pumping, including dewatering for basement construction. Consequently,it appears that the amount of flow from one, or even several, dewatering operations would not have long-term effects on the surface aquifer. In the.areas adjacent to the site beingdewatered, the rate and flow directions of the groundwater would be altered temporarily by the dewatering process. Groundwater in the influenced area would move toward the base of the excavation at a rate lower than the rate .·of dewatering discharge. This effect could extend from several feet to several tens of feet . beyond the excavation depending on the method used, the level of the water table at the time dewatering began·,· the permeability of the material adjacent to· the excavation, and the length of time the excavation needed to be kept open and dry. Flow directions and rates would revert to near normal when dewatering ceased. There would be some displacement of groundwater flow around the newly constructed . basement, depending on the permeability of the surrounding soil materials. The volume of space displaced by the basement could be several thousand to severai tens of thousands of cubic feet, which, although small-compared to the volume of the surface ~quifer, could be significant locally, especially if there were other similarly sized basements in the immediate vicinio/. The flow of groundwater would readjust to this condition, possibly altering the level of the water table in the vicinity of the site for· several weeks or months, but is unlikely to experience any major permanent change. The groundwater level in the surface aquifer Page 5 of7 I, ~ .. 1 _I·! I I I I r .. I I:· I I I . 111111 ' 11 ' ~ ASSOCJATES undergoes more significant changes during the rainy season than would be expected from long-term flow deflection caused by basements. Saltwater Intrusion and Subsidence Saltwater intrusion and subsidence in the Santa Clara Subbasin are documented regional effects of the excessive removal of groundwater from the deep aquifer (overdrafting) o~er . many years. This practice was curtailed in the mid-1960s when the importation of potable ·water increased substantially. Smee then, the SCVWD has been recharging the subbasin thereby raising groundwater levels, impeding saltWater infiltration of the sutface aquifer, and virtually eliminating further overdraft-related subsidence (the effects of previops · subsidence cannot be reversed because portions of the deep aquifer have been compressed permartently). Such basin-wide effects could recur only if the deep aquifer became overdrafted again. Because dewatering for basement construction occurs only in the. uppermost portion of the surface aquifer and involves only a small amount of groundwater withdrawal, no effects would occur in the deep aquifer. 3. Palo Alto Public Works Department existing regulatory structure. There are a number of policies in place that provide protection for the City's groundwater resource and for property owners in the vicinity of new basement construction. • • • • • The PublicWorks Department prohibits the long-term pumping ofgroundwater after a basement has been constructed. This eliminates the possibility that the w~ter ·table in the vicinity of the project would be lowered permanently. The Public W or.ks Department requires basements to be waterproofed and strengthened structurally below the expected groundwater level. This eliminates the need for groundwater pumping. The Public Works Department requires permit applicants whose projects would have basements to prepare a geotechnical investigation and report that would determine, among other information, the expected highest groundwater level in the local shallow aquifer. This allows the department to make informed decisions about the advisability of basement construct:lon at a particular site and/ or to _set the conditions under which basement construction may proceed. If dewatering is necessary for basement construction, the Public Works Department sets the dewaterillg permit conditions based on the hydrology of the specific site under consideration. This ensures resource and property protection where it is needed. The Public Works Department allows the removal of seepage water that collects along basement walls above the water table. Normally this removal would need only a minimal amount of pumping, but may need-to be monitored. Page 6of7 .... ~ .. A s ·s 0 c r A ·1 E s 4. Recommendation regarding the advisability of codifying groundwater effects in the Zoning O_rdinance Update · The above-listed Public Works Department policies dealing with basement construction and dewate:ring for such·constiuction are intended to prevent.substantial impacts to groundwater, either on an area-wide basis or in the vicinity of the construction site. Although the policies and their associated construction standards appear to address the . . . . issues adequately, it may be advisable for the Public Works Pepartmerit to increase the community's awareness of these issues through an out-reach program .. Because these issues are, essentially, engineering concerns that are site-specific and already covered by existing regulations, there is no need to modify the zoning ordinance with respect to them. Sincerely, George J. Burwasser, EIP Associates EIP ASSOCIATES 353 SACRAMENTO STREET SUITE 1000 SAN FRANCISCO, CALIFORNIA 94111 Telephone 415-362~ 1500 Facsimile 415-362-1954 E-mail .rf@eipas.wdaies.com JJJ/ll/V.eipassodales.com ATTACHMENT B BASEMENT EXCAVATION DEWATERING AND BASEMENT DRAINAGE RULES BASEMENT DRAINAGE: Due to high groundwater throughout much of the City and Public Works prohibiting the pumping and discharging of groundwater, perforated pipe drainage systems at the exterior of the basement walls or under the slab are not allowed for this site. A drainage system is, however, required for all exterior basement-level spaces, such as lightwells, patios or stairwells. This system consists of a sump, a sump pump, a backflow preventer, and a closed pipe from the pump to a dissipation device onsite at least 10 feet from the property line, such as a bubbler box in a landscaped area, so that water can percolate into the soil and/or sheet flow across the site. The device must not allow stagnant water that could become mosquito habitat. Additionally, the plans must show that exterior basement-level spaces are at least 7" below any adjacent windowsills or doorsills to minimize the potential for flooding the basement. Public Works recommends a waterproofing consultant be retained to design and inspect the vapor barrier and waterproofing systems for the basement. BASEMENT SHORING: Shoring for the basement excavation, including tiebacks, must not extend onto adjacent private property or into the City right-of-way without having first obtained written permission from the private property owners and/or an encroachment permit from Public Works. DEWATERING: Basement excavations may require dewatering during construction. Public Works only allows groundwater drawdown well dewatering. Open pit groundwater dewatering is disallowed. Dewatering is only allowed from April through October due to inadequate capacity in our storm drain system. The geotechnical report for this site must list the highest anticipated groundwater level. We recommend a piezometer to be installed in the soil boring. The contractor must determine the depth to groundwater immediately prior to excavation by using the piezometer or by drilling an exploratory hole if the deepest excavation Will be within 3 feet of the highest anticipated groundwater level. If groundwater is within 3 feet of the deepest excavation, a drawdown well dewatering system must be used, or alternatively, the contractor can excavate for the basement and hope not to hit groundwater, but if he does, he must immediately stop all work and install a drawdown well system before he continues to excavate. Public Works may require the water to be tested for contaminants prior to initial discharge and at intervals during dewatering. If testing is required, the contractor must retain an independent testing firm to test the discharge water for the contaminants Public Works specifies and submit the results to Public Works. Public Works reviews and approves dewatering plans as part of a Permit for Construction in the Public Street ("street work permit"). The applicant can include a dewatering plan in the building permit plan set in order to obtain approval of the plan during the building permit review, but the contractor will still be required to obtain a street work permit prior to dewatering. Public Works has a standard dewatering plan sheet that can be used for this purpose and dewatering guidelines are available on Public Works' website. Alternatively, the applicant must include the above dewatering requirements in a note on the site plan. Attachment C PUBLIC WORKS ENGINEERING BASEMENT EXTERIOR DRAINAGE POLICY EFFECTIVE OCTOBER 1, 2006 The Department of Public Works (Public Works) will not permit the use of basement exterior drainage systems consisting of perforated pipes located on the exterior of the basement walls or underneath the slab that collect water which is then pumped to the surface of the ground for discharge, either on-site or off-site, for all City of Palo Alto parcels northeast (the bay side) of Foothill Expressway. Purpose To ensure the public safety and health by preventing the discharge of groundwater into the City gutter system. The discharge of groundwater into the gutter system causes the following public safety, health and nuisance concerns: • gutters are constantly wet and may enhance the growth of algae, thereby creating a slippery condition for pedestrians, bicyclists and motorists • ponded water at the low spots of the gutter may be slippery to cross for pedestrians, bicyclists and motorists • ponded water in the gutter may become mosquito habitat • ponded water in the gutter may seep through cracks, undermining the subgrade and degrading the gutter and adjacent pavement • groundwater discharge into the City's storm drain system adversely affects others who need to discharge storm water run-off for which the system was designed Background In the past, Public Works allowed perforated pipe basement drainage systems to collect water behind basement walls and under basement slabs and discharge it at the ground. Architects proposed these systems in order to minimize the chances of water leakage through the basement walls and slabs. These systems were permitted with the intention of only collecting and discharging small amounts of rainwater that had seeped down through the soil. For proposed basement drainage systems, Public Works required geotechnical reports that estimated the highest expected groundwater level at the site and Public Works required that the perforated pipes be placed above this level. Recent experience indicates that oftentimes the groundwater level rose above the estimated level and entered the perforated pipes, resulting in the constant pumping of groundwater into the street gutter. Analysis Public Works has obtained a groundwater elevation contour map from the Santa Clara Valley Water District. These maps were established using data from numerous water monitoring wells the SCVWD maintains throughout the City. The contours are the depth below ground to the highest level the main groundwater aquifer has risen to since the monitoring wells were installed. The area of town where there is relatively high groundwater (above 20 feet below-grade) is roughly northeast of Foothill Expressway. The main aquifer depicted in the contour map is not the only source of groundwater. Due to soil properties, groundwater can get trapped between two relatively impermeable layers of soil. These lenses of perched groundwater can occur essentially anywhere and be of any size. Consequently, even though the SCVWD map may indicate a certain area of town has groundwater at 20 feet below-grade, for instance, there may currently be perched water closer to the surface or perched water may occur in the future closer to the surface. Summary Public Works feels that the public safety and health, potential nuisance, and maintenance concerns caused by the discharge of groundwater into street gutters outweigh the developers' desire for perforated pipe drainage systems. Although certain sites may seem appropriate for perforated pipe drainage systems because of current low groundwater levels, higher groundwater levels may occur in the future. Accordingly, Public Works will no longer permit perforated pipe basement drainage systems installed in order to discharge water at the ground surface northeast of Foothill Expressway. Drainage systems are required and will be permitted for basement-level exterior spaces, such as stairwells, lightwells and patios. These drainage systems consist of a sump, a sump pump, and a closed pipe from the pump to a dissipation device onsite, such as a bubbler box in a landscaped area, so that water can percolate into the soil and/or sheet flow across the site. The device must not allow stagnant water to occur that could become mosquito habitat. Additionally, the plans must show 8" of freeboard between the floor of any exterior basement-level space and any adjacent windowsills or doorsills. Glenn Roberts, Director of Public Works S:PWD/ENG/TYPING/Morris/Development/Basement Drainage/Basement Drainage Policy ASSOCIATES 2. Differences between shallow (surface) and deep (confined) groundwater aquifers. Defining the Aquifers An aquifer is a body of geologic material, usually rock or some mixture of gravel, sand, silt and clay, that is sufficiently permeable to conduct groundwater. Some definitions include the stipulation that the body produce an economically significant flow of water before it may be considered an aquifer. For the purposes of this technical memorandum, the broader definition is applied to allow for easier discussion of the water-bearing formations underlying the City. Of the various types of aquifers, two are of particular interest in this discussion: the shallow or surface aquifer, and the deep or confined aquifer. The relative terms 'shallow' and 'deep' refer to the depth of the aquifer below the surface of the ground (usually expressed as 'number of feet bgs' in hydrology studies). A surface aquifer is so named because it is open to the surface of the ground. Rain falling on the ground surface seeps through the soil (infiltration) to some depth where it pools to form a more or less continuous body of water occupying the spaces between sediment particles or rock fragments (groundwater). The top of this body of groundwater is the water table. In the Santa Clara Plain, which forms the lowlands of Palo Alto, the water table occurs at depths of as little as ten feet below the ground surface. Being open to the surface of the ground, the surface aquifer is subject to the influences of overlying land cover and land uses. Modern stream channels, such as the numerous reaches of San Francisquito Creek, intersect or overlie the surface aquifer, extracting water from it or adding water to it. Paving and construction create artificially impermeable surfaces that prevent local direct infiltration to the surface aquifer. Chemical constituents in urban and agricultural runoff enter the surface aquifer through infiltration from channels or detention basins, lowering the quality of the groundwater. Leaking landfill cells, leaking underground storage tanks, and liquid spills also contribute to the reduction of water quality in the surface aquifer. Although current stewardship has slowed water quality deterioration, the surface aquifer still cannot be used as a source of potable water. A confined aquifer is one that is separated hydrologically from the overlying and underlying sediments and rock and from other aquifers. Usually the separating agent (called an aquiclude) is formed by a layer of impermeable sediment, such as clay, or by impermeable rock, such as unfractured granite. The confined aquifer is not connected directly to the overlying ground surface and is separated from the surface aquifer by an aquiclude. It is, in effect, a separate hydrologic system, gaining water from some distant source (i.e., not local Page 2of7 ASSOClATlr:S surface aquifer, the base of which is the previously mentioned clay aquiclude identified by the Santa Clara Valley Water District (SCVWD) in its 2001 Groundwater Management Plan. The general direction of groundwater flow in this area is northeast toward the Bay, so the surface aquifer and the deeper, confined aquifers tend to remain separated in Palo Alto until they reach the vicinity of the Bay margin. The removal of groundwater from an excavation during below-ground-level construction is necessary to provide safety for the construction workers, and is a prerequisite for waterproofing the building's foundation and subsurface floors. One method for accomplishing this is to dig a small pit below the base of the foundation excavation, slope the excavation so groundwater drains to the pit, and then pump the water out of the pit and into the storm drainage system. Another method is to drill temporary wells around the building footprint and pump directly from the groundwater body to the storm drainage system until the local water table drops below the base of the excavation. In either case, groundwater flowing into the area of drawdown created by the dewatering process is deflected toward the base of the excavation, whence it is pumped to the storm drainage system. Groundwater beyond the influence of the dewatering process continues to flow normally. Dewatering pumping continues until the foundation and subsurface floors are completed and the excavation is filled. The amount of water deflected depends on the level of the water table, the permeability of the material adjacent to the excavation, and the length of time the excavation needs to be kept open and dry. An increase in any of these factors increases the amount of water deflected. This amount is small when compared to the total volume of available groundwater directly beneath the Santa Clara Plain (see below). Because the deflection is temporary and very localized, and because groundwater levels at the sites recover rapidly once pumping has ceased, there appears to be no discernable long-term effect on the surface aquifer. In the areas adjacent to the site being dewatered, the water table would be lowered temporarily by the dewatering process. This effect could extend from several feet to several tens of feet beyond the excavation depending on the method used, the level of the water table at the time dewatering began, the permeability of the material adjacent to the excavation, and the length of time the excavation needed to be kept open and dry. The possibility exists that adjacent landscaping could be experience deterioration from reduced groundwater availability. Deflection or Reduction of the rate of Groundwater Flow Although the amount of water pumped from an excavation may appear substantial as it Page 4of7 ASSOCIATES flows along a street to a storm drain inlet, it is small compared to the amount of groundwater directly beneath the Santa Clara Plain. The SCVWD's current estimate is that there is more than 350,000 acre-feet of groundwater available in the Santa Clara Subbasin. An excavation dewatering flow of 1 cubic foot per second would deflect 1.98 acre-feet of water per day. Because groundwater would be pumped out of the excavation faster than could flow in, the alteration in groundwater flow rate would be less than the rate of dewatering. Because the resultant groundwater flow deflection is temporary, small, and very localized, there appears to be no discernable long-term effect on the surface aquifer. Because dewatering for basement construction occurs only in the uppermost portion of the surface aquifer, there would be no effect on the deep aquifer. In a typical 3-month excavation period the 1.98 acre-feet per day dewatering flow would amount to 0.05% (one-twentieth of one percent) of the minimum known groundwater resource in the subbasin. No published information about the subbasin's water budget has been found, so any to attempt to predict how quickly the water would be replaced through recharge would be speculative. It is known, however, that the importation of potable water and the SCVWD controlled recharge program have assisted groundwater levels in the subbasin to rise 200 feet during the last 40 years. Most of that rise has been in the surface aquifer. The implication is that the subbasin is being recharged at a rate substantially higher than the rate of withdrawal from all pumping, including dewatering for basement construction. Consequently, it appears that the amount of flow from one, or even several, dewatering operations would not have long-term effects on the surface aquifer. In the areas adjacent to the site being dewatered, the rate and flow directions of the groundwater would be altered temporarily by the dewatering process. Groundwater in the influenced area would move toward the base of the excavation at a rate lower than the rate of dewatering discharge. This effect could extend from several feet to several tens of feet beyond the excavation depending on the method used, the level of the water table at the time dewatering began, the permeability of the material adjacent to the excavation, and the length of time the excavation needed-to be kept open and dry. Flow directions and rates would revert to near normal when dewatering ceased. There would be some displacement of groundwater flow around the newly constructed basement, depending on the permeability of the surrounding soil materials. The volume of space displaced by the basement could be several thousand to several tens of thousands of cubic feet, which, although small compared to the volume of the surface aquifer, could be significant locally, especially if there were other similarly sized basements in the immediate vicinity. The flow of groundwater would readjust to this condition, possibly altering the level of the water table in the vicinity of the site for several weeks or months, but is unlikely to experience any major permanent change. The groundwater level in the surface aquifer Page 5of7 ASSOCIATES undergoes more significant changes during the rainy season than would be expected from long-term flow deflection caused by basements. Saltwater Intrusion and Subsidence Saltwater intrusion and subsidence in the Santa Clara Subbasin are documented regional effects of the excessive removal of groundwater from the deep aquifer ( overdrafting) over many years. This practice was curtailed in the mid-1960s when the importation of potable water increased substantially. Since then, the SCVWD has been recharging the subbasin thereby raising groundwater levels, impeding saltwater infiltration of the surface aquifer, and virtually eliminating further overdraft-related subsidence (the effects of previous subsidence cannot be reversed because portions of the deep aquifer have been compressed permanently). Such basin-wide effects could recur only if the deep aquifer became overdrafted again. Because dewatering for basement construction occurs only in the uppermost portion of the surface aquifer and involves only a small amount of groundwater withdrawal, no effects would occur in the deep aquifer. 3. Palo Alto Public Works Department existing regulatory structure. There are a number of policies in place that provide protection for the City's groundwater resource and for property owners in the vicinity of new basement construction. • • • • • The Public Works Department prohibits the long-term pumping of groundwater after a basement has been constructed. This eliminates the possibility that the water table in the vicinity of the project would be lowered permanently. The Public Works Department requires basements to be waterproofed and strengthened structurally below the expected groundwater level. This eliminates the need for groundwater pumping. The Public Works Department requires permit applicants whose projects would have basements to prepare a geotechnical investigation and report that would determine, among other information, the expected highest groundwater level in the local shallow aquifer. This allows the department to make informed decisions about the advisability of basement construction at a particular site and/ or to set the conditions under which basement construction may proceed. If dewatering is necessary for basement construction, the Public Works Department sets the dewatering permit conditions based on the hydrology of the specific site under consideration. This ensures resource and property protection where it is needed. The Public Works Department allows the removal of seepage water that collects along basement walls above the water table. Normally this removal would need only a minimal amount of pumping, but may need to be monitored. Page 6of7 attained the compliance threshold as indicated for the Covered Project type as set forth in the Standards for Compliance outlined in Section 18.44.040. (u) "Single-family or two-family residential" means a single detached dwelling unit or two units in a single building. (v) "Square footage," for the purposes of calculating commercial, multi-family residential, and single-family and two-family new construction square ·footage, means all new and replacement square footage, including basement areas (7 feet or greater in height) and garages, except that unconditioned garage space shall only count as 50% of that square footage. Areas demolished shall not be deducted from the total new construction square footage. (w) "Threshold Verification by LEED AP" means verification by a LEED accredited professional certifying that each LEED checklist point listed was verified to meet the requirements to achieve that· point. The LEED AP shall provide supporting information from qualified professionals (e.g. civil engineer, electrical eng~neer, Title 24 consultant, commissioning agent, etc.) to certify compliance with each point on the checklist. Documentation of construction consistent with building plans calculated to achieve energy compliance is sufficient verification in lieu of post- construction commissioning. 18.44.040 Standards for Compliance. The City Council shall establish by resolution, and shall periodically review and update as necessary, Green Building Standards for Compliance. The Standards for Compliance shall include, but are not limited to, the following: (a) The types of projects subject to regulation (Covered Projects); (b) The green building rating system to be applied to the various types of projects; ( c) Minimum thresholds of compliance for various types of projects; and ( d) Timing and methods of verification of compliance with these regulations. The Standards for Compliance shall be approved after recommendation from the Director of Planning and Community Environment, who shall refer the Standards for recommendation by the Architectural Review Board, prior to Council action. 18.44.050 (a) 080604 syn 6050410 Incentives for Compliance. In addition to the required standards for compliance, the City Council may, through ordinance or resolution, enact financial, permit review process, or zoning incentives and/or award or recognition programs to further encourage higher levels of green building compliance for a project. 6 ATTACHMENT F 18.12.090 Basements Basements shall be permitted in areas that are not designated as special flood hazard areas as defined in Chapter 16.52, and are subject to the following regulations: (a) Permitted Basement Area Basements may not extend beyond the building footprint and basements are not allowed below any portion of a structure that extends into required setbacks, except to the extent that the main residence is permitted to extend into the rear yard setback by other provisions of this code. (b) Inclusion as Gross Floor Area Basements shall not be included in the calculation of gross floor area, provided that: (1) basement area is not deemed to be habitable space, such as crawlspace; or Ch. 18.12-Page 15 (Supp. No 13 -10/1/2007) 18.12.100 Regulations for the Single Story Overlay (S) Combining District (D) the cumulative length ofany excavated area or portion thereof that extends into a required side or rear yard does not exceed 15 feet; (E) the owner provides satisfactory evidence to the planning director prior to issuance of a building permit that any features or portions of features that extend into a required side or rear yard will not be harmful to any mature trees on the subject property or on abutting properties; (F) such features have either a drainage system that meets the requirements of the public works department or are substantially sheltered from the rain by a roof overhang or canopy of a permanent nature; (G) any roof overhang or canopy installed pursua~t to subsection (F) is within and is counted toward the site coverage requirements established in Section 18.12.040; (H) such areas are architecturally compatible with the residence; and (I) such areas are screened to off-site views by means oflandscaping and/or fencing as determined appropriate by the planning director. (Ord. 4869 § 14 (Exh. A [part]), 2005) 18.12.090 Basements (2) basement area is deemed to be habitable space but the :finished level of the first floor is no more than three feet above the grade around the perimeter of the building foundation. Basement space used as a second dwe~g unit or portion thereof shall be counted as floor area for the purpose of calculating the maximum size of the unit (but may be excluded from calculations of floor area for the total site). This provision is intended to assure that second units are subordinate in size to the main dwelling and to preclude the development of duplex zoning on the site. ( c) Lightwells, Stairwells, Below Grade Patios and other Excavated Features (1) Lightwells, stairwells, and similar excavated features along the perimeter of the basement shall not affect the measurement of grade for the purposes of determining gross floor area, provided that the following criteria are met: (A) such features are not located in the front of the building; (B) such features shall not exceed 3 feet in width; (C) the cumulative length ofall such features does not exceed 30% of the perimeter of the basement; (D) such features do not extend more than 3 feet into a required side yard nor more than 4 feet into a required rear yard, but where a side yard is less than 6 feet in width, the features shall not encroach closer than 3 feet from the adjacent side property line; (E) the cumulative length of any features or portions of features that extend into a required side or rear yard does not exceed 15 feet in length; (F) the owner provides satisfactory evidence to the planning division prior to issuance of a building permit that any features or portions of features that extend into a required side or rear yard will not be harmful to any mature trees on the subject property or on abutting properties; and (G) such features have either a drainage system that meets the requirements of the public works department or are substantially sheltered from the rain by a roof overhang or canopy of a permanent nature. (2) Below-grade patios, sunken gardens, or similar excavated areas along the perimeter of the basement that exceed the dimensions set forth in subsection (1), are permitted and shall not affect the measurement of grade for the purposes of determining gross floor area, provided that: (A) such areas are not located in the front of the building; (B) all such areas combined do not exceed 2% of the area of the lot or 200 square feet, whichever is greater; that each such area does not exceed 200 square feet; and that each such area is separated from another by a distance of at least 10 feet. Area devoted to required stairway access shall not be included in the 200 square foot limitation. ( C) such features do not extend more than 2 feet into a required side yard nor more than 4 feet into a required rear yard; (Supp. No 13 -10/1/2007) Ch. 18.12-Page 16 ATTACHMENT H May 8, 2008 Steve Broadbent 575 Washington Ave Palo Alto, CA 94301-4046 steve.broadbent@hp.com (650) 521-3958 Honorable Mayor Larry Klein and Council Members City of Palo Alto 250 Hamilton Ave Palo Alto, CA 94301 Via email Re: Green Building Ordinance -Request to Prohibit Basement Construction Honorable Mayor Klein and Council Members: I urge City Council to strengthen City ordinances to prohibit the construction of residential basements, especially basements which require dewatering during construction. The mechanical removal of millions of gallons of groundwater from a construction site has detrimental environmental impacts, and it is disingenuous for a construction project to be considered "green" when it builds a basement in an aquifer. One so called "green" project in Old Palo Alto pulled an estimated 100,000 gallons of water per day from our underground aquifer for a period of 6 months. The Green Building Ordinance under consideration by the City Council does not adequately address this abhorrent practice, and you should amend the ordinance to prohibit basement construction. The Planning & Transportation Division Staff Report for the April 9, 2008, study session on the proposed Green Building Criteria for Private Development recognized basement construction as an issue needing further scrutiny, but staff has failed to pursue satisfactory resolution: "The Commission and the public asked several questions about basements, including a) groundwater discharged, b) the effects of dewatering on groundwater and potential toxic plumes, c) the amount of concrete used, and d) impact on trees. "The Public Works Department has, in the past few years, revised its basement policy to prohibit dewatering basements after construction. Dewatering from basements during construction is still allowed ... Green Building Ordinance -Request to Prohibit Basement Construction Page 1of5 "During the Zoning Ordinance Update, staff commissioned EIP Associates to study the impacts of extensive basement construction on groundwater ... "Staff believes that the use of basements deserves continued scrutiny ... Planning has included provision in the green building criteria that larger homes (including basement floor area) must achieve a greater number of green point credits than smaller homes to help compensate for these resource impacts. Other approaches would require extensive discussion as to when or whether to continue to allow basements ... In recent ordinance discussions, this issue was broached but not pursued." I agree with staff that the use of basements deserves continued scrutiny, but I am disappointed that staff believes green point credits can mitigate the serious impacts basement construction has on our city. Public Works has attempted to dismiss concerns raised by many residents by declaring the impacts as "negligible" or by disavowing specific knowledge. A response that "staff is not aware" should not be considered closure on the issues raised. I take exception to a number of the conclusions put forth by Public Works, and I ask that Council direct staff to reconsider their findings, including but not limited to: • • • • • Impact to neighboring properties Land subsidence Impact on trees and landscaping Waste of water Other detrimental impacts Impact to Neighboring Properties Staff asserts "the study concluded that the impacts of basement construction were negligible on the groundwater system and on the groundwater on neighboring sites." However, the EIP study clearly stated that "In the areas adjacent to the site being dewatered, the rate and flow directions of the groundwater would be altered temporarily by the dewatering process. Groundwater in the influenced area would move toward the base of the excavation ... This effect could extend from several feet to several tens of feet beyond the excavation." My concern is not with the long term impact on the broader Santa Clara Valley groundwater system. My issue is with the site-specific impacts on neighboring properties and the local community. You should not allow macro responses to obscure the micro view of real damage that residential basements cause. There may be no discernable long-term effect on the broader surface aquifer beneath the Santa Clara Plain (macro view), but the prolonged extraction of groundwater from 2164 Green Building Ordinance -Request to Prohibit Basement Construction Webster Street most certainly sucked the groundwater from underneath neighboring properties, including mine (micro view). Although small compared to the volume of the surface aquifer (macro view), the volume of space displaced by a basement could be several tens of thousands of cubic feet which would displace groundwater flow around a newly constructed basement. This could be significant locally (micro view), especially if there were other similarly sized basements in the immediate vicinity (refer to EIP study, page 5). Several residents have horror stories of how the utility basements in their established homes began flooding after the construction of neighboring basements. The Foundation Engineering Handbook, by Hsai-Yang Fang (1991), confirms that" ... the process of dewatering can have side-effects that are harmful to the project under construction, the other facilities nearby, or to the environment ... Improper dewatering ... can cause damage to the structures being built or to adjacent structures." Land Subsidence It is well established that subsidence can occur with groundwater extraction, and the effects of subsidence cannot be reversed where portions of the aquifer have been compressed. "Saltwater intrusion and subsidence in the Santa Clara Subbasin are documented regional effects of the excessive removal of groundwater from the deep aquifer over many years ... the SCVWD has been recharging the subbasin [with potable water] thereby raising groundwater level ... and virtually eliminating further overdraft-related subsidence. Such basin-wide effects could recur only if the deep aquifer became overdrafted again. Because dewatering for basement construction occurs only in the uppermost portion of the surface aquifer and involves only a small amount of groundwater withdraw! [relative to the broader Santa Clara Subbasin], no effects would occur in the deep aquifer." (macro view, refer to EIP study, page 6) Take that "macro view" and bring it up to the surface aquifer underlying my home. My "micro view" is that the drawdown of the groundwater under adjacent properties can and does cause localized subsidence depending on the soil properties in the area. After 7 5 years, my home shouldn't be "settling" any more, but cracks in the plaster and cracks in the pavement developed during the extended dewatering at 2164 Webster. Fang confirms that "ground settlement can occasionally be a problem. Lowering the water table increases the effective stress in the soil. The stress increase is usually modest, and most soils are not affected significantly. But if there are compressible soils in the vicinity ... settlement may occur. Whether the settlement causes significant damage depends on the thickness and consolidation characteristics of the compressible deposit, the depth of drawdown and the duration of pumping, the foundations of the structures within the zone affected, and the type of their construction." Green Building Ordinance -Request to Prohibit Basement Construction Page 3of5 Impact on Trees and Landscaping Not only do I disagree with the Planning Arborist's assertion that "the localized drawdown of the water table during dewatering does not impact trees as their roots do not typically extend to that depth," the EIP study contradicts that assertion: "The possibility exists th'lt adjacent landscaping could experience deterioration from reduced groundwater availability." (refer to EIP study, page 4) Fang also confirms that, "trees ·or other plantings in urban parks may be affected [by dewatering]." Regardless of ~hether tree roots extend into the aquifer or not, the strong pull of drawdown wells during a dewatering operation accelerates the percolation of surface waters and induces drought-like conditions as the soil dries out. Landscape irrigation cannot and should not be considered sufficient mitigation of the drought-like stress inflicted on trees during prolonged dewatering. Waste of Water The City has been studying the use of recycled water for landscape irrigation and other non-potable uses, and a multimillion dollar recycled water project is being considered. The City clearly recognizes the need for water conservation, yet it permits the intentional discharge of millions of gallons of water into our storm drains. That simply doesn't make sense. Public Works has stated that the water pumped from the shallow aquifers typically goes into the storm drain system and then into the creeks, some of which are "losing" creeks, meaning they lose their water back to the shallow aquifers. Public Works asserts that the water is pumped out of the aquifer and then added back to it. But Public Works fails to acknowledge that there are no "losing" creeks in my neighborhood, only engineered channels. • Adobe is all concrete bottom and sides from Hwy 101 to Alma. • Matadero is all concrete bottom and sides from Hwy 101 to Alma, except from Greerto hwy 101 • Barron is all concrete bottom and sides from Hwy 101 to Alma except for about 800 feet just upstream of hwy 101. Concrete channels are not "losing" creeks, and since the natural aquifer flow is from the foothills to the bay, any recharge in the short sections near Hwy 101 does not repleni'Sh the impacted neighborhood. Green Building Ordinance -Request to Prohibit Basement Construction Page4 of5 Other Detrimental Impacts In addition to the unnecessary waste of water, the large volume of water pumped into our storm drains could rupture our aging storm drains, damage streets and underground utilities, and cause a sinkhole to develop. Fang also notes that groundwater in the vicinity of a dewatering operation may be affected "by temporary reduction in the yield of supply wells, by salt water intrusion, or by the expansion of contaminant plumes." Call for Action Mayor Klein and Council Members, I call upon you to take action to restrict residential . basement construction and stop the destructive practice of de watering. Palo Alto wants to be a leader in the Green Building movement. Please amend the Green Building Ordinance to prohibit residential basement construction in Palo Alto. Sincerely, Steve Broadbent Green Building Ordinance -Request to Prohibit Basement Construction Page 5 of 5 Attachment I To: Palo Alto City Council & Planning & Transportation// Re: Dewatering and Basement Construction// Date: July 19, 2008 Honorable Council and Planning and Transportation Committee Members: I am writing to express my concerns about dewatering and basement construction in Palo Alto. I am a professional scientist who has specialized in groundwater hydrology since 1975. I have a BS in Geology from Dickinson College and MS and PhD degrees in Hydrology from Stanford University. I have lived in Palo Alto for 31 years. The following statements are my personal views as a resident. I recently received a call from another Palo Alto resident who purchased an older home near property that was being outfitted with a new house. Excavation for the new home's basement required pumping over 18-million gallons of groundwater 35 feet to land surface, where the water was discarded into the City's storm sewer. According to the caller, this dewatering was carried out with the approval of the City, without the need for a variance. The resident reported that dewatering volumes on the order of millions of gallons have been produced in multiple instances in Palo Alto, as mega basements have become popular. I do not advocate a complete ban on basement construction. Nevertheless, it is clear that large parts of the City are unsuitable for the sorts of basements being built. Projects that require large-scale dewatering should not be allowed. The reasons are simple: (1) Construction of finished (dry) space where any part of that space is below the water table is not advisable and should rarely if ever be allowed. This is necessary not only to protect the newly constructed space, but also to conserve energy and water resources and to prevent overloading of the storm-sewer system. Building codes prohibit basements that would be "subject to flooding." The maximum elevation of the water table during normal rainy seasons, plus a reasonable safety margin, sets the limit for allowable subsurface construction. The need for large-scale dewatering indicates that the structure being built is subject to flooding by groundwater. It is not to anyone's advantage to build basements in unsuitable locations. The City must uphold existing law. (2) Extensive low-lying areas of Palo Alto have shallow water tables, rendering them unsuitable for basements. These areas were prone to flooding prior to "reclamation" projects that "channelized" the downstream reaches of creeks and diked off the Palo Alto Baylands. Sea-level rise from global warming is underway. Sea-level rise will increase water-table elevations in low-elevation areas of the City. Empirical projections based on ICPP scenarios call for 0.5 to 1.4 meters (1.6 to 4.6 feet) of sea-level rise by 2100 ( http://www.sciencemag .orgtcgitcontent1abstract131s1ss10/368). These projections are likely low ( http://www.sciencemag.org/cgi/co~tent/abstract/317/5841/1064). (3) The cone-of-depression from construction dewatering involving extraction wells with only a few feet of horizontal setback from adjoining properties will definitely extend beneath the adjoining properties, with potentially harmful effects from desiccation and differential settling. Palo Alto's soils are heavily textured "adobes" in which the dominant minerals of the fine fraction are montmorillonitic (smectitic) clays. Smectitic clays swell with wetting and shrink with drying. Although modem foundations are designed to avoid 1 of2 To: Palo Alto City Council & Planning & Transportation// Re: Dewatering and Basement Construction// Date: July 19, 2008 failure in soils that shrink and swell, older structures are vulnerable to harm. Dewatering removes water from adjacent properties. It seems prudent to avoid situations where one person's allow.ed dewatering can harm neighboring properties. ( 4) Wasteful consumption of City water resources is a serious issue. Eighteen million gallons of water is about 24-thousand CCF (hundred cubic feet). If applied to a medium- sized City park with 200,000 square feet of irrigated turf-roughly the size of the Mitchell Park soccer fields-the depth of the applied water would be about 12 feet. This represents one hundred weeks of irrigation-five years' worth at 20 irrigation weeks per year. Virtually all water removed during construction ends up in the Bay via lined storm- runoff conveyances. Virtually none of it recharges groundwater or soil moisture. Waste on this scale is unconscionable. ( 5) The possibility of groundwater contaminants being captured by construction wells poses risks at multiple locations throughout the City. As more commercial and industrial areas are rezoned to residential uses, the number of risks increases. Many contaminant plumes are mapped, but others are poorly characterized. Such risks additionally weigh against construction dewatering. In summary, basements must be restricted to areas that have adequately thick unsaturated zones-not all areas of Palo Alto are suitable. Large-scale dewatering should not be permitted. Preservation of property and avoidance of contaminant entrainment are compelling reasons to reassess current practices. The public costs of construction dewatering are unacceptably high. Groundwater is a City resource so precious that no one should be permitted to squander it on grand scales. Prudent restriction of dewatering and basement construction will protect all parties. My only interest in this matter was a promise to a fellow Palo Altan-concerned by groundwater impacts-to assess the situation and communicate my findings to you. With best regards, David A. Stonestrom 1000 S. California Ave. Palo Alto, CA 94306 2 of2 ATTACHMENT J Davldson%20Basement%20Excavatlon%20Photos.htm 9/15/08 5:55 PM From: Williams, Curtis Sent: Monday, September 15, 2008 5:55 PM To: Williams, Curtis Subject: FW: Basement Excavation Photos from: Jodyldavidson@aol.com [mailto:Jodyldavidson@aol.com] sent: Tuesday, April 22, 2008 6: 02 AM To: Williams, Curtis Cc: French, Amy Subject: Basement Excavation Photos Hi Curtis, These are some photos to help explain what I meant when I was trying to explain that the underground footprint of basements was too large. On the smaller size lots, the builders often excavate closer to the allowed set backs. Many often excavate right up to the lot line, and then the builders start putting in the concrete and rebar. I have seen this many times. People in adjacent homes have told me that they believe that the excavation has ruined the foundation of their homes. Since the side yard is all concrete, there is no where for the water to flow, except laterally. This causes flooding to neighboring homes. Additionally, there is simply not enough side yard to allow for planting, and the rear set backs are really too small to allow for tree planting when the tree grows. Basically, the homes on these lots are all home and no yard. I hope that the city will consider reviewing their poli9ies on the allotted size of a new home on these smaller lots. Allowing this building practice has caused a lot of disharmony within our community. Many residents feared that their homes could actually fall into the adjacent excavation site, and in many cases they had to pay for fencing to protect their property. Many felt that the chain link fence was simply not enough protection when the builders excavate to the lot line. Please remember that some of the adjacent older homes on the smaller lots may not have this 6 foot side allowance. Regards, Jody Davidson file:// /S: {PLAN/ PLADIV /Cu rtis/Desktop%2 05.8.08 /Green /Basements/Davldson%20Basement%20Excavation%20Photos.htm Page 1of3 Green cement may set C02 fate in concrete SFGale.mrn Green cement may set C02 fate in concrete Carrie Sturrock, Chronicle Staff Writer Tuesday, September 2, 2008 (09-01) 19:18 PDT --Call him cement man. ~-__ -. _ r e Attachment K Back when Stanford Professor Brent Constantz was 27 he created a high-tech cement that revolutionized bone fracture repair in hospitals worldwide. People who might have died from the complications of breaking their hips lived. Fractured wrists became good as new. Now, 22 years later, he wants to repair the world. Constantz says he has invented a green cement that could eliminate the huge amounts of carbon dioxide spewed into the atmosphere by the manufacturers of the everyday cement used in concrete for buildings, roadways and bridges. His vision of eliminating a large source of the world's greenhouse C0{-2} has gained traction with both investors and environmentalists. Already, venture capitalist Vinod Khosla is backing Constantz's company, the Calera Corp., which has a pilot factory in Moss Landing (Monterey County) churning out cement in small batches. And Carl Pope, executive director of the Sierra Club, says it could be "a game changer" if Constantz can do it quickly, on a big scale and at a decent price. "It changes the nature of the fight against global warming," said Pope, who has talked with Constantz about his work. That might sound like hyperbole, but the reality is that for every ton of ordinary cement, known as Portland cement, a ton of air-polluting carbon dioxide is released during production. Worldwide, 2.5 billion tons of cement are manufactured each year, creating about 5 percent of the Earth's C0{- 2} emissions. When Constantz learned about the high C0{-2} levels, he thought he could do better. After all, the majority of his 60 patents have to do with medical cement. He claims his new approach not only generates zero C0{-2} , but has an added benefit of reducing the amount of C0{-2} power plants emit by sequestering it inside the cement. http://www.sfgate.com/cgi-bin/article.cgi ?f=/c/a/2008/09/02/MNGD 129361.DTL&type=~ri... 9/4/2008 '\ Green cement may set C02 fate in concrete Page 2 of 5 To make traditional cement, limestone is heated to more than 1,000 degrees Celsius, which turns it into lime -the principal ingredient in Portland cement -and C0{-2}, which is released into the air. Constantz uses a different approach, the details of which remains secret pending publication of his patent. At his pilot factory, a former magnesium hydroxide facility that made metal for World War II bombs, magnesium crunches underfoot as Constantz, wearing a pressed, blue button-down shirt with rumpled shorts and sandals, outlines' how the process works. He pointed to two enormous smokestacks billowing flue gases full of carbon dioxide next door at Dynegy, one of the West's biggest.and cleanest power plants. Constantz takes that exhaust gas and bubbles it through seawater pumped from across the highway. The chemical process creates the key ingredient for his green cement and allows him to sequester a half ton of carbon dioxide from the smokestacks in every ton of cement he makes. Constantz believes his cement would tackle global warming on two fronts. It would eliminate the need to heat limestone, which releases C0{-2}. And harmful emissions can be siphoned away from power plants and locked into the cement. The same process can also be used to make an alternative to aggregate -the sand and gravel -that makes up concrete and asphalt, which would sequester even more carbon dioxide from power plants. "The beauty here is we're taking this old industrial polluti~g infrastructure and turning it into something that will save the environment," Constantz said. On a per-person basis, the United States is the world's worst C0{-2} polluter from all sources. But according to the Netherlands Environmental Assessment Agency, China just surpassed the U.S. for total carbon dioxide emissions. China is expected to produce 47 percent of the world's 2.5 billion tons of cement this year, Constantz said. To power its new buildings and sustain its building boom, China constructs at least one coal-fired power plant a week. Each one belches out enough C0{-2} to cancel the benefits of every hybrid on U.S. roadways, said Constantz. A C0{-2} molecule can travel from Beijing to San Francisco in less than a day through atmospheric circulation, he said. So even with California mandating that C0{-2} emissions fall to 1990 levels by 2020, a crisis remains. http://www.sfgate.com/cgi-bin/article.cgi?f=/c/a/2008/09/02/MNGD129361.DTL&type=pri... 9/4/2008 Green cement may set C02 fate in concrete Page 3 of 5 "Carbon dioxide is a global problem, not a regional problem," he said. As far as cost, Constantz estimates his cement would retail for $100 a ton versus roughly $no for Portland. The reason no one invented it before now, he said, is that pe~ple didn't truly understand the dangers of C0{-2} until less than a decade ago. Skeptics question product He has skeptics. Portland cement has a track record of more than 100 years, and any new material would have to get incorporated into building codes, noted Rick Bohan, director of construction and manufacturing technology for the Portland Cement Association in Skokie, Ill. And Tom Pyle, a Caltrans engineer who serves on the cement subgroup of Gov. Arnold Schwarzenegger's Climate Action Team, acknowledged that the technology is possible, but he still wants to examine Constantz's cement. "We hope they have a carbon-reducing viable construction material," he said. "They need to show up with a bag of this so we can test it." Constantz is confident he will prove himself. Initially, he proposes mixing his new invention with Portland cement to ease a conservative industry into a new product. Concrete bigwigs have invited him to speak about Calera cement at their annual World of Concrete in Las Vegas next February. Power plant partnerships Constantz envisions building cement factories next to power plants the world over. A team is scouting out U.S. locations. While Dynegy has supplied Constantz with some flue gas, it hasn't entered into a formal agreement. "As we're looking into the future, we're very interested in technology that would help capture C0{- 2} from the flue gase~ and turn it into a product that offers a benefit," said Dynegy spokesman David Byford. It could be good for business. California has mandated emissions reductions. And Congress is working on legislation that would allow high polluters to buy credits from those with low emissions. Power plants would have a huge incentive to sequester their C0{-2} in cement. But even if Constantz succeeds, the world would still need to do much more to fight C0{-2} emissions, said Chris Field, director of the department of global ecology at the Carnegie Institution http://www.sfgate.com/cgi-bin/article.cgi?f=/c/a/2008/09/02/MNGD129361.DTL&type=pri... 9/4/2008 Green cement may set C02 fate in concrete Page 4 of 5 for Science at Stanford. "It's a big, long complicated game," he said. "As we develop each new segment of the solution we need to embrace it and deploy it and work hard to develop the next segment of the solution." Coral basis of idea Big ideas can form in haphazard ways. The one for bone cement began during a televised football game, when Constantz read an osteoporosis article in the New England Journal of Medicine. Three weeks later, as he studied a coral reef, it occurred to him he could maybe synthesize coral skeletons in human bones. His new cement mimics how coral reefs form, too. Coral uses the magnesium and calcium present in seawater to create carbonates much as he's using C0{-2} and seawater to make carbonate. This latest invention took 18 months to conceive and execute. He feels it's one of the most important things he's ever done. "Climate change is the largest challenge of our generation," he said. Who is brent constantz? Profession: An associate consulting professor in Stanford's department of geological and environmental sciences and founder of the Calera Corp. Created and sold three other companies - Norian Corp., Corazon Technologies Inc. and Skeletal Kinetics. Education: UC Santa Barbara, bachelor's of science (1981); UC Santa Cruz, doctorate (1986) Family: Married and father of four. Pastime: Surfing and rock climbing. Concrete facts about cement 2.5 billion tons of hydraulic cement is produced worldwide annually. Add sand and gravel and that makes more than 9,000 million cubic yards of concrete. That's more than enough concrete to pave an eight-lane highway from the Earth to the moon and back again -twice. If you stayed on the planet, that same eight-lane highway would circle the Earth almost 40 times. Source: Portland Cement Association E-mail Carrie Sturrock at csturrock@sfchronicle.com. http://sfgate.com/cgi-bin/article.cgi?f=/c/a/2008/09/02/MNGD12936I.DTL http://www.sfgate.com/cgi-bin/article.cgi?f=/c/a/2008/09/02/MNGD129361.DTL&type=pri... 9/4/2008 New Aquifer Filling Station Revised 5/26/2015 1 Attachment B Piping System •Arrange piping system to draw water from settling tank being careful to keep the inlet a minimum of 1-2 feet above the bottom of the tank to avoid settlement residue. 2 Locate the Filling Station •Filling station should be located at the property line outside of the construction fence. •Try to locate the station in a place where parked vehicles will not prevent equipment from using it, i.e. on a corner, near at the edge of a driveway, etc. •The filling station should be accessible 24/7. 3 Filling System •Piping runs from the settling tank to a pump capable of providing a minimum of 150-200 gpm. •Outlet of pump runs to lockable box where a standpipe is constructed. •Standpipe contains a valve and outlet fitted with a MALE 2 ½” NH threaded fitting (Fire Hydrant threads). •Inside the box is also located a switched GFI outlet to which the pump is plugged into. When the switch is thrown, the pump turns on. This switched outlet is connected to the construction site’s temporary power. The GFI power outlet may be placed somewhere outside the box, however, the switch should be inside. An “in-use” cover must cover the switch/outlet. •A hose with a male connection shall be stored in the box to allow the water to be used for dust control onsite and for filling tanks without pre-attached hoses or fittings. •A standard hose bibb shall be installed next to the box to allow for gravity-fed filling of smaller “neighbor containers”. 4 Plumbing Signage •The piping outside of the property lines needs to comply with California Plumbing Code Section 603.5.11: •Each outlet on the non-potable waterline shall have posted: “CAUTION: NONPOTABLE WATER, DO NOT DRINK.” This would apply to the hose bibb utilized by neighbors for non-potable purposes. The CPC also requires that exposed portions of the piping be properly identified to the satisfaction of the AHJ. CPC Section 601.2 provides identification for non-potable systems within a building. Although the proposed work is not within a building, the method would adequately identify the piping system. •Section 601.2 Non-Potable Water System Identification •The system shall have a yellow background and black uppercase letters, with the words “CAUTION: NONPOTABLE WATER, DO NOT DRINK.” The required piping identification shall be every 20 feet. The sizing of this lettering should be per CPC Table 601.2.2. •This ‘signage’ comes in the form of stickers and can be easily found online. 5 Fill Point and Discharge Signage •The contractor shall provide a sign according to Public Works specifications and attach it to the outside of the fill station box. •The contractor shall also provide signs to be mounted on a standard “A-frame” barricade to be placed at the dewatering discharge point (usually a catch basin). •Upon completion of dewatering activities, the signs shall be returned to the Public Works Inspector for recycling. 6 Water Station Sign Specifications •These specifications are provided as guidance to produce/order consistent signs: •This sign is aluminum, 20.5” tall by 14” wide. The margin is 0.25” and the border is also 0.25” wide. •“Water Filling Station” is 1.5” tall, Highway Series E font. •“Suitable For Irrigation Purposes” is 0.75” tall, Highway Series B font. •“Do Not Drink” is 1.2” tall, (font as it is part of the symbol). The red circle and slash has a circumference of 4.5”. •The city logo is 4.2” tall by 2.2” wide. •Mount this sign to the water station door. 7 Discharge Point Sign Specifications •These specifications are provided as guidance to produce/order consistent signs: •This sign is aluminum, 24” tall by 24” wide. The margin is 0.375” and the border is 0.625” thick. •“Non-Potable Water Discharge” is 2”tall, Highway Series C font. •“Do Not Drink” is 1.2” tall, (font as it is part of the symbol). The red circle and slash has a circumference of 4.5”. •“To Use This Water…” is 1” tall, Highway Series C font. •The city logo is 4.2” tall by 2.2” wide. •Mount this sign to each side of an A-frame barricade (2 signs total) and place it at the discharge point. 8 Log Sheets •Copies of the following log sheets with a pen shall be attached to the inside of the door of the filling station. •All users of the water filling station shall fill out the form for each use. 9 Log Sheet: Available from Public Works 10 Instructions •Attach a copy of operating instructions to the inside of the box. •Sample instructions: 11 Security •Box should be sturdy and locked with a combination lock. •Provide the lock combination to Public Works – Engineering Services. 12 Inspection •NO DISCHARGE IS ALLOWED WITHOUT A DEWATERING PERMIT. •Once there is groundwater in the settling tank, contact the Environmental Compliance division at (650) 329-2122 or (650) 329-2430 to have the water tested. •Public Works will contact you to inform you of the results. •Once the station is constructed and ready to operate, contact Public Works Inspection at (650) 496-6929 to schedule an inspection. •Once the Inspector has approved of the station installation, Public Works - Engineering Services can issue you the dewatering permit. 13 Important Notification •Contractor shall notify Public Works – Engineering Services ONE WEEK prior to ending dewatering operations. •This will allow City staff to adjust vehicle operations and routes accordingly. 14 Final Notes •The New Aquifer Filling Station is a quickly evolving program - changes, modifications, revisions, and additional conditions, policies, and equipment required may occur at any time. •This handout is a living document and will be revised as the program develops. 15 Questions? •Contact: Mike Nafziger, P.E. Senior Engineer Public Works – Engineering Services (650) 617-3103 mike.nafziger@cityofpaloalto.org Or, Public Works – Engineering Services (650) 329-2152 16 GROUNDWATER PUMPING HAPPENING IN YOUR NEIGHBORHOOD A BASEMENT CONSTRUCTION PROJECT in your neighborhood is pumping water to a stormdrain which leads to a creek. This groundwater cannot be used as drinking water, but it can be pumped to creeks or used for irrigation and dust control. Creeks would ultimately receive this same water if it was not pumped there first. This water is important to the creek and Bay ecosystems. The construction project in your neighborhood offers a residential filling station to access some of this pumped water for use on landscaping. Visit cityofpaloalto.org/recycledwater or call (650) 329-2151, Press option #8 for filling station locations and additional information. Attachment C Updated and posted 8/11/15 Groundwater Pumping From Building Sites Frequently Asked Questions During this time of severe drought, our community is working hard to conserve water. So when community members observe water pumping from construction sites, they want to know what is happening. Here are answers and information to help address the most frequently asked questions we have heard. Q. What is the water that I see running into the storm drain from construction sites? A: During the construction of a basement or underground garage there is sometimes a shallow upper groundwater aquifer that must be temporarily pumped down to allow construction to move forward. This groundwater is not the same water that would be used for drinking. Q: Does the City regulate the pumping and discharge of this water? A: The City permits the discharge of this water to either the storm drain or the sanitary sewer, depending on the water quality. The water is sampled and tested for cloudiness, salinity and acidity. Only very clear, high quality water can go to the storm drain. Temporarily pumping this water is standard practice in areas with groundwater closer to the surface to allow construction to proceed, and no practical alternative has been found. Using the water for irrigation and dust control is possible, and the owners and construction managers are strongly encouraged to find uses for the water. Q: Given the high quality of the water and the severity of the drought, why does the City allow it to be “wasted” by discharging it into the storm drain system? A: The shallow water aquifer being pumped contributes to the flow of our creeks and to the Bay. The groundwater is part of the water cycle for the Bay and enhances the habitat and improves the quality of the creeks and lower South San Attachment D Updated and posted 8/11/15 Francisco Bay. When the shallow aquifer is pumped from basement construction sites into storm drains, it travels a different path, but ends up in the same place: the lower South Bay. So, the water is not wasted, but rather is used to improve the Bay’s habitat and ecosystem, whichever pathway it takes. Q: Can’t this water be used for other purposes? A: The pumped water hasn’t been disinfected or sufficiently tested to drink or use inside the home. Palo Alto‘s emergency drinking water wells tap into a much lower and more protected aquifer. However, the pumped water could be used for irrigation, dust control or similar uses. Palo Alto now requires that contractors have the pumping system fitted with valves and connections so that City crews and others can fill water trucks, street sweepers and other containers. For truck fill stations, the water is tested for acidity and salinity. Private parties can also fill trucks and containers. Such “fill-stations” are now in place at the Palo Alto active basement construction pumping sites listed below:  1405 Harker  1820 Bret Harte  804 Fielding  713 Southampton  3832 Grove  2230 Louis View our map of FREE Water Filling Stations. The site owners and construction managers are encouraged to find more water users, but this will continue to be a small fraction of the total pumped water. Call 650-617-3103 for more information about accessing the fill stations. The volume of water being pumped is large compared to pump truck capacities, but is too small and too shallow to impact the very deep and very large Palo Alto emergency ground water aquifer. Updated and posted 8/11/15 Q. What happens after construction? A: In recent years, Palo Alto has required that structures be built as water tight so that groundwater flows around a building, rather than into it. But a number of older buildings leak, and water is pumped out of the building basement/garage into the storm drain or sanitary sewer. Palo Alto City Hall and 525 University are two of the largest “dischargers”. We have looked at utilizing the water from City Hall, but it has not proven to be cost effective. With new water restrictions in place, this issue is being reexamined once again. However, the City Hall water does go through the storm drain to San Francisquito Creek where it supports habitat, including for fish, especially in the summer when there is no rainfall. Q. What can I do if I see water being wasted? A: The City has hired a part-time Water Waste Coordinator who is specifically dedicated to drought response actions. Need to report a leak, runoff or waste? We have many communications means for you! Please let us know!  Report water use incidents through the City’s PaloAlto311 web or mobile app at cityofpaloalto.org/services/paloalto311/ or go visit to www.cityofpaloalto.org/water to access the link directly.  Contact the City’s Water Waste Coordinator at 650-496-6968 or Martin.Ricci@CityofPaloAlto.org - or -  Call Customer Service at (650) 329-2161 - or –  Email UtilitiesCommunications@CityofPaloAlto.org - or –  Call Utilities Emergency Dispatch at (650) 329-2579 1 10/5/2015 GROUNDWATER PUMPING FOR RESIDENTIAL BASEMENT CONSTRUCTION Frequently Asked Questions Save Palo Alto’s Groundwater, a Community Resource Is groundwater pumped for residential basement construction? Yes. Very large amounts of groundwater from the shallow surface aquifer are pumped to build basements when below ground soils are saturated to provide dry soils using a commercial-scale construction process termed “dewatering.” This technique is now being permitted for constructing residential basements in Palo Alto at a rapidly increasing rate, from an average of five (5) per year (2006 – 2008) to at least 14 this year. Dewatering is used only at those sites with water saturated soils; it is not used at drier sites. Why should I care about groundwater pumping for basement construction? Aquifers and groundwater are a community and public trust resource that, although unseen, play an important role literally supporting structures and infrastructure, draining storm water, and storing and providing moisture for our canopy and plants. What are the effects of removing groundwater? Removing groundwater has a variety of impacts. The forces exerted by groundwater literally support the ground, structures and infrastructure and through capillary action, provide water to our trees. The shallow surface aquifer pressure increases the recharge of the deeper aquifer which is used for irrigation and on which Palo Alto relies for emergency water. Lowering the water table locally causes ground settling. This settling may not be uniform across structures, which may then develop either tight doors or windows, or permanent cracks in foundations, walls or masonry. Settling of even less than an inch is adequate to cause permanent structural damage. Lowering the water table below the seasonal normal fluctuation can cause irreversible compression of the soil (hysteretic soil compaction). What are the effects of lowering the water table on vegetation? Water available for trees and plants is reduced. Soils wick water up, much like sponges, resulting in increased soil moisture several feet above the water table, well into the root zones of trees in much of the area in which dewatering is occurring. What are the impacts of these basements after construction? Both the City of Palo Alto and the Santa Clara Valley Water District provide incentives to install permeable pavement to reduce the amount of storm water entering storm drains and instead soak into the ground, thereby reducing flood risks and recharging aquifers. Basements displace soils that would otherwise be available to absorb rain water, increasing the probability that rain water will flow into the storm drains. Attachment E: Correspondence 2 10/5/2015 Much of Palo Alto is known to have covered gravel beds from former creekbeds. Basements are dams in the unseen rivers that flows through the soils, gravel beds and aquifer beneath Palo Alto. Water needs to flow around these basements. If water cannot flow through the soil fast enough, it will flow above the soil, into the storm drain system, and if the storm drain capacity is exceeded, will flood our streets and properties. The water table/water pressure surrounding a basement is locally higher, in the same manner as water in a flowing river is higher as it flows around an obstacle. The locally higher water table increases the risk that basements in neighboring properties will flood. What can I do if my property is damaged by ground settling caused by groundwater pumping? You’re on your own. You must resolve any damage claims directly with the party that caused the damage. The City will neither order the dewatering to stop nor help you with any damage claims. You may sue. In that case it will be necessary for you to prove that the specific dewatering operation was the cause of the damages, and most likely pay attorney’s fees, which might be reimbursed if you obtain a judgement in your favor. How much water is pumped? In total, it is estimated that 126 million gallons (16,000,000 ft3) of groundwater has or will be pumped out for the construction of 14 basements in Palo Alto in 2015 alone. This is enough to cover a football field 275 feet deep, or fill 50,400 water tank (2,500 gallon) trucks, or provide enough water for 18,000 average Palo Alto residences for the entire month of July, 2015 (equivalent to 40-50% of the state-mandated water conservation goal for all single family residences in Palo Alto for a year) or lower the aquifer by more than 1 foot over an area of 1 square mile. This estimate is based upon the midpoint of City’s estimate of 8 – 10 million gallons (1.2 million cubic feet) per basement. For some basements, more than 20 million gallons is pumped. The amount of water being pumped out is not metered. Where is groundwater pumping occurring? Most of the residential dewatering projects are concentrated in an area of approximately 1 square mile bounded by Webster Street, Louis Road, Colorado Avenue and Channing Avenue, although two are near Middlefield Road further south. From where is the water pumped? Groundwater is typically pumped from 15 to 25 feet below grade, and the groundwater table locally lowered about 2 feet below the bottom of the basement in the area to be excavated. The “bottom” of the basement is generally 10 – 20 feet below grade; some are below sea level. Groundwater is typically pumped at a rate of 50 – 100 gallons per minute continuously for 3 – 6 months. 3 10/5/2015 How much do government agencies collect in fees and permits for construction dewatering? The City of Palo charges approximately $710 for a dewatering permit for 6 months. There is no usage-based fee or assessment for discharging the groundwater pumped out for construction into the storm drain. The total cost to the developer for removing this resource from our aquifer is about $710. How much do residents pay for equivalent water disposal in the storm drain? The Storm Drain Fee for 1 equivalent residential unit (ERU) is $12.63 / month ($151.56 / year). A single dewatering site will dump as much water down the storm drains as the city estimates would go into the storm drains from 480 residences (1 ERU / residence) in a year. Developers are not currently required to pay any additional fees to compensate for the heavy use of the city’s storm drains, even though a “fair share” payment would be $72,748 for a typical basement. How much would Santa Clara Valley Water District charge for a resident to pump non-potable groundwater for irrigation? Santa Clara Valley Water District charges about $600 / acre-foot (43,560 ft3) for a permit to pump groundwater. For the amount of water pumped for a typical basement, the cost would be approximately $16,500. However, a specific exemption from fees is provided for construction dewatering in the shallow aquifer. The fee to builders is zero. Is this groundwater pumping sustainable? The amount of water removed from the aquifer in 2015 is roughly the same as would be available to recharge the aquifer from average (not drought) rainfall for one year, after allowing for runoff and evaporation over an area of 1 square mile. What happens to the pumped groundwater? Approximately 99% is dumped into the storm drains, which then flows to the Bay. Isn’t this pumped water available for irrigation for free? The City requires faucets with hose connections and fill stations for water tank trunks at each dewatering site. There are no requirements for the actual use of the water or the pressure supplied to hose connections for neighborhood use; City policy effectively condones wasting water. In practice, the water is not substantially used. Although the water is of high quality and usable, it is wasted. How and when is the shallow surface groundwater replenished? Primarily from rain and landscape irrigation. Precise recharge rates are not known, but it is believed to be in the range of months to years. Doesn’t the water flow to the Bay anyway, and therefore doesn’t pumping the groundwater improve the environment of the Bay? The aquifer and soils have an important role in transporting storm water to the Bay; more water flows in the unseen river beneath our homes to the Bay over the course of a year than 4 10/5/2015 down the creeks. However, during the summer, there is little flow in the aquifer (there almost no flow in creeks either). Dewatering locally lowers the water table below its normal historical low level, and in some cases below sea level, much as pumping water from a lake could lower the lake level below the outlet level. Hasn’t the City already carefully studied dewatering? The City commissioned a study in 2004, and City staff reviewed the study in 2008 after receiving citizen complaints. Not only are several important issues not addressed, especially related to local effects, there are important differences between the current situation and the time of the original study. Existing City dewatering policy does not anticipate the current number or water volume of dewatering activities within the City. Despite acknowledgment by the study that there will be “temporary and local effects,” the study does not meaningfully address localized impacts, including ground settling, reduced soil moisture for trees, flood risks and storm water management, public compensation for the use of the water, or public policy in an era of climate change. Furthermore, it is incorrectly assumed that short-term effects will not cause permanent damage. From where did this information come? All information in this document is either provided by or derived from the City of Palo Alto, the Santa Clara Valley Water District, USGS topographical maps, the US National Oceanographic and Atmospheric Administration, and materials provided by degreed professionals in soil sciences or hydrology, including documents in the Public Record for the City of Palo Alto. What is the objective of Save Palo Alto’s Groundwater? Palo Alto’s groundwater is a community resource too valuable to freely pump and dump down storm drains simply for the construction of residential basements. We are requesting that the City of Palo Alto enact an immediate moratorium on new permits for the pumping out of our groundwater (“dewatering”) for the construction of residential basements in Palo Alto to further study the effects of dewatering. Dewatering should only be permitted if the study shows negligible impacts, including effects on storm water management and flood risks, and policy is updated to require minimization and complete mitigation of all impacts including requiring full use of the pumped water, payment for use of infrastructure and resources, protection of infrastructures, properties, and the canopy, with all costs to be assumed by the developing party. Is a more detailed document available? Yes, a White Paper including references is available upon request. How do I obtain further information or help with this effort? Send an e-mail with your name and contact information to PAgroundwater@luxsci.net Questions related to the City of Palo Alto policies on permitting the pumping of groundwater for the construction of residential basements Keith Bennett 8/11/2015 Background: My concerns relate to the documented local and transient impacts of new basements and their construction, as well as the permanent impacts of new, large basements on the capability of local soils to handle rainwater during periods of heavy rain, such as has been experienced in 1982 and 1998. My primary concern is not the apparent “waste” of a groundwater resource during a drought (although the amount of water pumped for basement construction is about 10% of the total 24% conservation goal for the City, and report indicates that the surface aquifer being pumped has partly been replenished by imported water from the Delta). Aside from considerations of water quality, I am aware that City has far more water that could be used for irrigation (aside from delivery cost) available from the Water Treatment Plan I have read the 2004 report by EIP, as well as the Staff Report from Curtis Williams dated 9/24/2008. From my reading of these reports, they do not support the conclusions that dewatering on the current scale in Palo Alto is not without significant adverse effects. 1. My understanding is that the two documents listed above, plus soils reports generated from the construction of new buildings, especially buildings with basements are the primary bases for City Policies. The City has prepared a map showing groundwater depth based upon measurements related to construction. This map is available in electronic format. The soils reports from new construction are copyrighted, and may be viewed, but may not be copied. I assume, however, that the City could, if desired, use the information in the soils reports for analysis and modelling purposes. Is my understanding correct and substantially complete? 2. Importance of recharge rates and source on the overall impacts of dewatering on the shallow aquifer. Long term impacts are only negligible if they aren’t offset by recharge. The 2004 Report primarily focuses on the impact on the level of the entire Santa Clara Subbasin surface aquifer, and simply assumes that the water pumped in a year will recharge the next year. Shouldn't the basis for policy consider not only the fraction of the total available aquifer pumped, but also critically consider recharge? The report states the following: a. There are 5 – 10 basements / year constructed with dewatering in Palo Alto, and as the aquifer extends beyond Palo Alto, and other cities may also pump groundwater, the total impacts on the aquifer would be far more significant. It would appear that annually >1% of the aquifer / year or 10% per decade could be depleted. This is not insignificant. To avoid long-term effects, the groundwater must be recharged. b. The subsurface aquifer has been significantly recharged by IMPORTED (i.e. purchased) water (Pg 6, see above): “It is known, however, that the importation of potable water and the SCVWD controlled recharge program have assisted groundwater levels in the subbasin to rise 200 feet in the last 40 years. Most of the rise has been in the surface aquifer.” Note: it is the surface aquifer that is being depleted for dewatering. A January, 2015 document from the SCVWD “Where does our water come from?” (attached) lists three primary sources for groundwater replenishment: “3. Water importation from the Delta, which the district also releases to creeks and recharge ponds for managed groundwater recharge.” Should Palo Alto have a policy that accelerates sending of water to the Bay through groundwater pumping in a drought when replacement supplies are restricted, and furthermore, it appears from public documents that some of the water being pumped for basement construction may, in fact, may in fact be due to SCVWD groundwater recharge programs? Is it reasonable that those dewatering be permitted to use this resource without compensation based upon consumption, i.e. shouldn’t the dewatering amount be metered and charged for example to pay SCVWD for replacement water? 3. Local Effects The EIP report does not provide any basis to support the statement (Pg. 5) regarding the geographical extent of local lowering of the groundwater, and provides no information on the volume profile of the dewatering: a. Assuming a dewatering of 1,000,000 ft3, well below the 7,000,000 ft3 mentioned as typical in the report, but comparable to the lower end of the pumping rates and durations mentioned in the City Staff report corresponds to a volume of 500 x 500 x 8 feet, assuming 50% porosity of the soil. It is clear that some effects must extend well beyond “several tens of feet.” It is also clear that the extent of dewatering must depend upon local soil composition, the depth of pumping and the time (and rate) that the water is removed. b. The 2004 states “local settlement on the order of fractions of an inch could occur.” (pg 7.) Settlement (either temporary or permanent) of even fractions of an inch is adequate to break windows, cause cracks in masonry and plaster, or require doors to be reworked to open and close properly. There is no guarantee that settling will be perfectly level across a nearby property, which is likely the case if a gradient is created in the soil moisture content. Furthermore, the dewatering may extend below the depth of normal “seasonal” water table variation and therefore may affect the supporting capacity of soils between the dewatering depth and the normal “low level” of seasonal water table fluctuation. Reports by homeowners (including the letter in the 2008 Staff Report from the resident at 575 Washington), myself of home damage and a broken water main on N. California several hundred away from, but particularly correlated in time with dewatering events. Could these events provide evidence that dewatering is, in fact, causing at least temporary settlement large enough to affect infrastructure and homes, and that the extent may be further than assumed? c. There is no discussion on the impacts of dewatering on soil moisture (used by plants) above the aquifer. The Santa Clara County Water District leaflet compares soils to a sponge: The relevant question is the extent to which dewatering reduces soil moisture in the surrounding area not whether or not tree or plant roots are below the water level of the aquifer (generally, plants desire moist, but not saturated soils, as they need air, therefore the roots of land plants are generally not in saturated soils. Like sponges, soils wick water upwards from the aquifer. Is soil moisture unchanged above the aquifer when the water table is locally and temporarily lowered? It is important to consider the effects of dewatering in the spring, when soil moisture and the water table are both higher. Isn’t reducing soil moisture earlier in the year in the root zone of plants is more or less equivalent to an artificial drought? Of course, it is possible to compensate for lower soil moisture by watering plants more, however this is quite expensive during conditions such as the current drought, and furthermore the expense is borne by the affected homeowners and city plants (e.g. trees). If dewatering does increase the need for supplemental watering, then, isn’t dewatering in practice indirectly increasing demand for potable water (as it’s 1/10th the price of recycled water). 4. Long term impacts of basements on flooding risks during storms A simple analysis shows that basements extending into a zone of saturated soil (once constructed) will significantly and negatively affect the ability of local soils to hold and drain rainwater during heavy storms, with increased risks of flooding, either in neighboring homes and in wider areas. a. The construction of basement means that there is no soil in the removed volume to absorb rainwater. As basement and lightwell can cover 35% of the lot, and any basement that requires dewatering for construction by definition extends to saturated soils, the local reduction in the capacity of soils to hold rainwater is significant. The result is a locally higher water table / water pressure, at least temporarily until the water can drain. The locally higher water table increases the risk that neighboring properties, especially those with older basements will flood. The 2008 letter from the resident of 575 Washington mentioned the same concern. Complications of basement flooding can be significant. In 1998, basement flooding triggered a fire at 595 N. California (a pilot light was extinguished by the water; the escaped gas then exploded when lit by a different pilot light). Additionally many basements of older homes were flooded. Basements only rarely flood. During the 1998 storm, the saturated water line along Webster St. near N. California was about 3- 4’ below street grade, indicating that there is no significant extra capacity in the soils, at least in some parts of the city. It is likely that soils were saturated closer to the surface in lower areas. If the soils become saturated to the surface, rainwater will no longer be absorbed and instead will flow into the storm drains. If the storm drains cannot handle the additional water, localized street flooding will occur. The City provides rebates for the use of permeable paving materials to reduce the load on the storm drains. This assumes that the soils can absorb the water and release it more slowly. Is the construction of large (and deep) basements in areas that have risk of soil saturation above the basement level consistent with this policy? Is a policy that increases the risk of flooding wise? Is it appropriate for Green Building Certifications? b. Basements are like dams in the unseen river through the soils (and aquifer) beneath Palo Alto, and impede the discharge of water during periods of heavy rain, increasing the level of saturated soils, and the risks of flooding. We would not think of blocking any creek, yet basements are doing so for the channel that carries the most water to the Bay. i. The soils and aquifer under Palo Alto surely carry significantly more water to the Bay than San Francisquito Creek over the course of a year. This can be easily be shown by calculating the volume of water in even 12” of annual rainfall that falls on the area (about 3.3 x 1.8 miles) of Palo Alto between El Camino and San Francisco Bay and comparing the annual volume of water to that which flows in San Francisquito Creek. In addition, the soils and aquifer must carry water from lands west of El Camino, including Stanford and the foothills. ii. The potential of basements to block aquifer / soil water flows is very significant. Basements are now quite large (perhaps covering ½ of the property width) and a very large fraction of new construction (~70% in permitted areas) includes finished basements. Have the impacts of basements on the capacity of our soils to handle rainwater during heavy storms been properly considered? From: Leah Rogers [mailto:leah.rogers@stanfordalumni.org] Sent: Monday, October 26, 2015 6:38 PM To: Council, City; Keith Bennett Subject: re: Per request of Greg Schmid during Oral Comments at the Oct 5 2015 City Council Meeting Dear All: Below is my effort to put in writing what I said in the Oral Comments period of the October 5 2015 City Council Meeting. I have also included some references at the request of Greg Schmid. Thanks you for your time and listening to these thoughts about the dewatering issue. Sincerely, Dr. Leah Rogers (Ph.D. from Stanford in Hydrogeology) The 2004 EIP report suggests the range of influence on the water table aquifer is on the order of tens of feet from the dewatering well. The amount of water table drawdown necessary in construction of basements in Palo Alto is approximately 15 feet (i.e. drawing down the water table from 10 ft below ground surface to 25 ft below ground surface. If we consider standard calculations of radial flow applications of Darcy’s Law (Freeze and Cherry, 1979 (note Eq 8:12-8:15); Manning, 1997; Bennett et al., 1990), a lowering of the water table level approximately 15 feet an unconfined aquifer in alluvial deposits may create a cone of depression that spreads out towards a few hundred feet in any direction. This assumes some general hydraulic conductivities and other aquifer parameters that could be in alluvial deposits in this area. Note regional studies suggest hydraulic conductivity values may range between 260 and 6000 gpd/ft2 (McCloskey and Finnemore, 1996). There are many major factors that influence the drawdown of the water table: thickness of the water table aquifer, interfingering of layers that may inhibit flow (aquitards in which case coefficients would have to be assumed to account for leaky aquifers), and whether or not steady-state is reached. Precise predictive modeling would require to collection of data from time dependent well testing. However, we may say qualitatively where there were more sands and gravels the cone of depression would reach further than if there were tighter silts and clays. When several of these projects going on in the same neighborhood, which is the case in Palo Alto, cones of depression may interact cumulatively. As the dewatering effect from multiple projects are cumulative and interact with reduced irrigation, it is difficult to assign “responsibility” for damages to property or landscaping to specific dewatering projects. The drying out of soils is often not perfectly reversible. This is called hysteretic soil compaction. For example, wet clay worked into a dry piece of pottery cannot simply be put back into it’s original state by submerging it in water. Imagine over a 3-4 month dewatering project that particularly the interfingering clays in the subsurface will cause unequal rewetting. It is quite plausible that the scale of these dewatering projects are responsible for the additional cracks in walls and foundations which neighbors in the area have noted. For example, the 2008 City Manager’s Report includes a letter from Steve Broadbent raising such issues. Overall, it would seem that the City of Palo Alto would do well to require dewatering projects to provide specific characterization and predictions of groundwater impact during the course of the proposed project before approving any dewatering especially in times of drought and water- conservation. Even better would be adoption of construction practices and project designs that significantly reduce the need for dewatering, especially considering reduced irrigation in the area during droughts. References: Bennett, Gordon D., Thomas E. Reilly, and Mary C. Hill. 1990. Technical Training Notes in Ground-Water Hydrology; Radial Flow to a Well. US. Geological Survey Water Resources Investigations Report 89 4134. http://pubs.usgs.gov/wri/1989/4134/report.pdf. Freeze, R.A. and J. A Cherry. 1979. Groundwater. Prentice Hall Inc., Englewood Cliffs, NJ. 604 pp. Manning, J.C. 1997. Applied Principles of Hydrology. Prentice Hall, third edition, 276p. McCloskey, T.F. and E. J. Finnemore. 1996. Estimating Hydraulic Conductivities in an Alluvial Basin from Sediment Facies Models. Ground Water, Vol. 34, No. 6 November- December 1996. http://info.ngwa.org/gwol/pdf/962962189.PDF. On Wed, Jul 15, 2015 at 4:18 PM, Bobel, Phil <Phil.Bobel@cityofpaloalto.org> wrote: Ms. Relman: Our Assistant City Manager, Ed Shikada has asked me to respond to your 7/14 email about the pumping of groundwater to allow the construction of basements. A number of residents have raised issues very similar to yours, and we have created a website to address them: Recycled Water Web Page . Scroll down to the last line and click on “here” to see our “Frequently Asked Questions” about the pumped ground water. While I know it appears to be wasting water, the shallow ground water aquifer is flowing to our creeks and Bay. The pumping and discharge of this shallow ground water to the storm drains sends the ground water to the same place, our creeks and Bay, where it supports ecosystems and their wildlife. Nonetheless, the City is working with builders to try to get as much of water used as practical. The main limitations are the very high cost of trucking the water and the lack of a piping system from the pumping sites. Farmers are just too far away to make their using it practical at this time. A portion of the water is being used to water City trees, provide dust control at construction sites, and similar non-potable uses. With respect to the potential for drawing down the shallow groundwater and causing land subsidence, we do not have reason to believe this would occur, given the short duration pumping and the small number of wells involved here. Subsidence can occur when pumping happens over a number of years from many wells. I hope this helps address your concerns. Phil Bobel Assistant Director, Public Works From: Shikada, Ed Sent: Wednesday, July 15, 2015 8:07 AM To: Georgia Relman Cc: Council, City; Bobel, Phil Subject: Re: draining ground water Dear Ms. Relman, Thanks for contacting us with your concerns. I will ask Public Works staff to review the issue and reply directly to you. There has been quite a bit of activity on this issue recently that may interest you, specifically on the topics you raised. You may also wish to participate in future discussions. Sincerely, Ed Shikada Assistant City Manager On Jul 14, 2015, at 4:12 PM, Georgia Relman <georgiarelman@gmail.com> wrote: Hi All, I have a question. Just in our neighborhood alone (around professorville), 4 construction sites building private homes are draining ground water at full blast down storm drains; this has been going on for many MONTHS now. Why are private construction companies allowed to drain Palo Alto ground water? Wouldn't it be of benefit to use this water for Palo Alto parks etc. or sell it to farmers for Palo Alto profit (because it is needed)? When the ground water is drained under Palo Alto, will the ground sink as it has in other areas of California as they are being drained of ground water? Why is this not of concern to our city government? (I don't get it) Sincerely, Georgia On Apr 25, 2015, at 2:32 PM, Skip Shapiro <sailorskipca@yahoo.com> wrote: Dear Mayor Holman and City Council, This is a request for the Planning Department and the City Council to take immediate action to stop groundwater pumping which occurs during the construction of residential basements. As long time Palo Alto residents, we are appalled to see millions of gallons of groundwater going down storm drains in the midst of this historic California drought. At the same time, residents and businesses have been asked to curtail water use for landscape and other uses. Even worse, the pumping depletes groundwater that is essential to the health of trees, causes subsidence that can damage property, and consumes water Palo Alto relies upon for emergencies. This morning we passed a home under construction on Harker where groundwater is being pumped. We estimated the flow rate to be 75 gallons per minute (based on the fill time of a 5 gallon bucket), which equates to 108,000 gallons – or 14,400 cubic feet – per day. From past experience monitoring similar groundwater pumping for basement construction, the pumping will continue for at least 4 weeks. That amounts to more than 400,000 cubic feet of wasted water. Residential basement construction is a relatively recent phenomenon in Palo Alto, driven by people maximizing living space within lot coverage constraints. It has likely contributed to the steep increase in property values and encouraged buyers who raze existing houses to replace them with new ones that include basements…without considering the impact on neighbors, the community, and the environment. We think it’s time to halt approval of residential construction that includes basements where groundwater pumping is required. Basements should not be allowed on these sites. We request an immediate moratorium on design and construction approval for any home where groundwater pumping is required. We also ask the City Council to direct the Planning Department to review and change regulations that permit residential basement construction. Respectfully, Barbara and Skip Shapiro Mr. James Keene General Manager City of Palo Alto 250 Hamilton Avenue Palo Alto, CA 94301 Dear Mr. Keene, .Li-.l ___ : . ;;.,\GC:.:;' '·,,. c.c> Ph 11 Borel M·1k~ N°'tz\ger Valoran P. Hanko --r ' . c, rvvk-·on 864 Fielding Court uOJ)\ ce l)'KJ ).j.)\J 1 Palo Alto, CA 94303-3645 May 19, 2015 I recently noticed a pumping operation in my neighborhood at 804 Fielding Drive that is reminiscent of an operation that occurred next door at 858 Fielding Ct in 2001. This pumping operation takes ground water from our underground aquifer and sends this to the storm drain as undesirable waste in preparation of a new residential construction. When this operation was performed in 2001, the surrounding neighborhood sank in elevation resulting in a new designation for the neighborhood to be within the 100 year flood zone, where as prior it was not. Additionally, this resulted in cracks in the pavement of our street where the sinking of the ground is still evident. Additionally, it was observed by some neighbors that their house slab foundations (characteristic of the 1940's period-build homes) had shifted and cracked. The house behind us had their garage drop in elevation in one of their corners. I estimate that non-potable water is being pumped at a rate of about 0.5 gal/sec, which equates to 30 gallons per min, 1800 gal per hour, 43,200 gal per day, 302,400 gal per week. Since this operation went for about 6 months at the next door neighbor's site, assuming a constant rate, this amount of water would be equivalent to (at 1.2 million gallons of water per month) 7.2 million gallons of underground water. Since the volume of water occupying 1 gallon is 0.134 cubic feet per gal (7.48 gal per cubic feet), 7.2 million gallons would take 970,000 cubic feet of underground aquifer space, and it is a fact that when the ground collapses into this aquifer space, it can never be retrieved again. The loss of elevation in the neighborhood places financial burden upon innocent people, causing many with mortgage payments to be required to have FEMA Flood Insurance, and even those who own their house, puts them at new risk of flooding. I believe this pumping action, apparently approved by the City Building Department, has not been seriously evaluated for its consequences by qualified engineers without bias. Furthermore, this precious water is being wasted into the storm drain during a severe drought, another irresponsible action. I am not sure about the legal consequences of halting this operation in my neighborhood, but as General Manager you must have some power to take emergency actions when severe consequences can be seen or is discovered, and thus this letter is to inform you of this matter with the hope that you can stop this pumping process and new building permit approvals, and to suspend all current operations until appropriate state-of-the-art engineers have evaluated this type of operation. Meanwhile, I intend to contact the Santa Clara County Water Resources Board about this concern, and hope you may work together with them to seek a resolution that does not adversely impact the community, one that includes the preservation of our underground aquifer. //~.:c•r•I:? / /fj ~~/ / ~··· 1. c{c:~ l~ i Valoran P. Hanko · PUBLIC WORKS CITY OF P.O. Box 10250 PALO ALTO Palo Alto. CA 94303 · 650.329.2151 July 6, 2015 Valoran P. Hanko 864 Felding Court Palo Alto, CA 94303-3645 Dear Mr. Hanko: Thank you for your May 19 letter concerning the impacts of basement construction groundwater pumping. I've been asked to respond on behalf of Palo Alto City Manager Jim Keene. Your letter expresses concern about a current pumping site and one that took place in 2001, both in your neighborhood. With respect to the earlier pumping, you expressed the belief that the pumping caused the ground to subside. We do not have reason to think that is the case. The additions to the flood zone that were made around that time were the result of new, better data, as opposed to any anticipated change in actual elevations. The earlier flood zone map had been based on a more limited set of elevation measurements. When more elevation data was collected in the 2000 time frame, it resulted in relatively small shifts in the flood zone boundary, but ones which were very important to the individual houses affected. You calculated the rough amount of ground water pumped out and postulated that that the ground level would sink to a level associated with that loss of water. We do not believe that would be the case. Rather, the groundwater is moving and new ground water would fill behind the groundwater being pumped out. Only a large number of wells operating over a long time frame would cause a relatively permanent change in the ground water elevation and an associated ground level subsidence. As you know, subsidence has occurred in a number of areas where large numbers of wells have pumped over time. You also expressed the view that the pumped water going to the storm drain was being wasted. And yet this ground water was moving toward our creeks and Bay and ultimately would have replenished both. Pumping some of it to the storm drain results in it traveling a different path, but ultimately reaching the same locations: our creeks and Bay. Our creeks and Bay need this water to preserve ecosystems and maintain needed salinity levels. Nonetheless, because of the strong feelings of a number of our residents, we are working to have builders minimize the amount pumped and use as much of the water as practical. Builders are now required to build "Fill Stations" at their sites so that others can fill trucks and tanks and use the water. The current pumping site at 804 Fielding near you has a Fill Station. The City, other builders and residents like you can use the water. Please see our website for the other locations and contact information: www.cityofpaloalto.org/water. C ityOf Pa lo A lto.org Printed with soy-based inks on 100% recycled paper processed without chlorine. I hope this addresses your concerns. Please do not hesitate to contact Mike Nafziger (650-617- 3103) for more information about 804 Fielding, or myself (650-279-0464) for broader issues we are facing in this most difficult time of drought. Sincerely, cfi?:f il,&t Phil Bobel Assistant Director, Public Works From: "Andrei Sarna-Wojcicki" <andreisarna@gmail.com<mailto:andreisarna@gmail.com>> To: "Council, City" <city.council@cityofpaloalto.org<mailto:city.council@cityofpaloalto.org>>, "letters@dailynewsgroup.com<mailto:letters@dailynewsgroup.com>" <letters@dailynewsgroup.com<mailto:letters@dailynewsgroup.com>> Cc: "Deborah Harden" <deborahrharden@gmail.com<mailto:deborahrharden@gmail.com>> Subject: Fwd: Groundwater is wasted by pumping at construction sites and dumping into storm sewers To: Mayor of the City of Palo Alto and the City Council: I have sent this message to the Public Comment web site two of days ago, but have not received an answer, and the matter is urgent. I have also sent it previously to the Palo Alto daily news site (letters@dailynewsgroup.com<mailto:letters@dailynewsgroup.com>). So, I'm forwarding this email to you and the City Council. By now, three days have elapsed since I sent the first message, and an estimated minimum of 260,000 gallons of groundwater have been pumped from the construction site at 2133 Webster and dumped into the storm sewer at the corner of N. California and Byron Streets. The water continues to be pumped as I write this (I just went by there a few minutes ago). Putting up a sign saying that the public can help themselves to the water does not solve the problem of this wasteful practice, continued with city approval during a time of extreme drought. As I mentioned in the message, this is just one of several construction sites in the city where pumping of groundwater is going on. This is a wasteful practice during ordinary times, and more so during the current severe drought. The water needs to be used for watering the trees and green areas of the city, and to maintain the level of the groundwater to keep city and residential trees from dying. The excavation at the Webster site must be at the site of a buried old gravel channel, to account for the high discharge. The water that is being wasted by direct dumping into the storm sewers not only deprives the trees in the vicinity of the pumping and downstream in the water table, but it also depriving a whole ecosystem at lower elevations downstream in the water table to the southeast--the marshes and the city Baylands. This is a high price to pay for allowing cellars to be built in an area that is at low elevations (the Webster St. site is at ~17 feet above sea level). Another several such construction sites have been recently finished near our house on Garland Drive. These are at an even lower elevation, 10 to 15 feet. Building cellars in these areas is a mistake, and has been historically avoided in this area since early European settlement for very good reasons. The water table here is high and irregular in elevation. Some of the new cellars actually intrude below the water table, as appears to be the case at the Webster Street site. I urge you to take this matter under advisement. Additional comments and arguments are provided in the forwarded email. Sincerely, Andrei M. Sarna-Wojcici, Resident of Palo Alto (708 Garland Drive) Retired geologist, U.S. Geological Survey ---------- Forwarded message ---------- From: Andrei Sarna-Wojcicki <andreisarna@gmail.com<mailto:andreisarna@gmail.com>> Date: Thu, May 7, 2015 at 10:41 AM Subject: Groundwater is wasted by pumping at construction sites and dumping into storm sewers To: letters@dailynewsgroup.com<mailto:letters@dailynewsgroup.com> Cc: Deborah Harden <deborahrharden@gmail.com<mailto:deborahrharden@gmail.com>> Dear Sir or Madam: Groundwater is being wasted on the Peninsula by being pumped out at construction sites and dumped into city storm sewers. This practice is actively going on at at least three construction sites in Palo Alto, and probably at many more throughout the Peninsula. I passed by one such site at 2133 Webster St. in Palo Alto at ~10:45 AM yesterday, returned by there at ~12:45 noon, and passed by there again at ~5:45 PM. The water was going full blast the whole time from the construction site, around the block to N. California and Byron streets, and down into a storm sewer. I estimated that about a gallon of water was dumped every second from a six-inch diameter pipe, which would amount to about 25,200 for the 7 hours time of my observation. This is probably a minimum for this particular site for this day. At the calculated rate, this would amount to 86,400 gallons of water for a 24 hour period. My wife observed the same practice going on a few months ago from another site, for at least a week. This is a massive waste of groundwater during a period of severe drought. It depletes water from an already depleted water table, forming a cone-shaped depression around the pumping site, and decreasing the available groundwater in that area from flowing farther down in the water table toward lower elevations, thus lowering the water table and depriving trees from water. It's killing off our trees. This water needs to be used for watering the trees and other plants in the municipal parks and other public grounds, and any left over water should be made available for residential use. Reservoirs need to be constructed to store this water, and a distribution system be put into place, perhaps even by temporary above-ground plastic pipe systems during this drought, to make use of this water. At the dump site that I observed, a sign put up by the city of Palo Alto which informs the public that the water is not potable, that it is being discharged (no duh), and states that "...To use this water for irrigation pr other non-potable purposes, follow this discharge hose back to the water filling station." I presume this refers to the pumping site at 2133 Webster. And what does the Palo Alto citizen do then? Bring a Dixie Cup and help himself/herself to the water? Or back-up a tanker truck to the site and fill-up? This is obviously a large job that the Peninsula municipalities need to address. I sent a message regarding this situation to the city of Palo Alto today. I attach photos from the pumping and dump sites I observed yesterday. Sincerely, Andrei Sarna-Wojcicki, Resident of Palo Alto Comments to Council regarding Dewatering Residential Basement Construction Keith Bennett November 9, 2015 The City of Palo Alto has a history of developing policies to protect natural resources, to protect our environment and to encourage sustainability. Water is now recognized as a valuable and limited resource, and groundwater is an important component of the City of Palo Alto’s Emergency Water Supply. Climate change is predicted to increase the risks of droughts, megadroughts and floods, in addition to sea (and Bay) level rise. https://www.washingtonpost.com/national/health-science/todays-drought-in-the-west-is- nothing-compared-to-what-may-be-coming/2015/02/12/0041646a-b2d9-11e4-854b- a38d13486ba1_story.html 1) The Groundwater Supply Feasibility Study performed by Carollo Engineers for the City of Palo Alto in 2003 provides quantitative analysis and measurements of the effects of groundwater pumping in Palo Alto. Data from the pumping in 1988 of groundwater for local domestic water use was deemed to be the most reliable and is the primary basis for the conclusions of the report, which is available at: http://www.cityofpaloalto.org/cityagenda/publish/uac-meetings/1930.pdf Some main points are summarized below. In this section, quotes indicate verbatim text from the study, italics indicate my personal analysis using other information including map data. Text not in quotes are my personal summaries of information from the study. a. “Utilizing the data from the 1988 pumping, the extraction of 1,000 acre-feet from the Palo Alto area will result in basin-wide water level declines on the order of 15 feet.” --- pg. 20 The shallow surface aquifer level, typically a few feet below the ground surface, declines in response to pumping the deeper aquifer as shown by the well level graphs. --- pgs. 5 - 10 b. The water levels in the Fernando, Middlefield and Matadero wells were lowered by 18, 25 and 37 feet respectively, even though water was not pumped from any of those wells. --- Table 1, pg. 13 An interactive map showing the locations of the wells and 2015 basement dewatering sites is attached (Map A) with this document and available online at: https://www.google.com/maps/d/edit?app=mp&hl=en_US&mid=zW7thpaYaYZI.kYz YfTCRxd_Q The Middlefield well is located about 5 blocks (0.4 miles, straight line) from the Rinconada Well (from which 600 acre-feet of water was produced in 1988) and about 0.7 miles from the Hale Well (produced 400 acre-feet in 1988). Peers Park (produced 400 acre-feet) is the closest well to the Fernando and Matadero wells and is 1.0 – 1.2 miles away. c. “Depending on the method, estimates of average annual recharge to the basin are between 38 and 3,800 acre-feet. “ -- Pg. 20 d. “The year-to-year 500 AFA* extraction is intended to not lower groundwater levels substantially, which would preserve the natural groundwater flow direction and prevent saltwater intrusion. The periodic 1,500 AFA well use described above would result in transient occurrence of water levels below sea-level. While water level below sea-level will reverse the seaward gradient, the slow travel time of groundwater provides a buffer from seawater intrusion for transient use. “ – Pg. 21 * AFA = Acre-feet annually. 2) The total amount of groundwater pumped for residential basement construction in 2015 is estimated to be about 400 acre-feet, based upon an average of 1.2 million cubic feet (28 acre-feet) per basement for the 14 basements dewatered in 2015. 3) The Groundwater Supply Feasibility Study estimates that the water table is lowered approximately proportionately to the amount of water pumped. Using the value in the report of 15 feet lowering for 1,000 acre-feet pumped, the estimated lowering of the water table due to dewatering for residential basement construction in 2015 would therefore be about 6 feet, and would extend over large areas of Palo Alto. 4) An advisory Measure N, “Emergency Underground Water Storage and Equipment Replacement,” (November 2007) passed with 91.84% of the vote. The Emergency Water Supply Project (EWSP), WS-08002, was approved by Council in 2007 and bonds totaling $35,015,000 were sold on October 6, 2009. Of this amount, approximately $5.36 million was used for projects related to using groundwater: groundwater feasibility studies (CMR 124:06 and related), rehabilitation of existing wells (CMR 232:10) and construction of new wells (CMR 371:09). The bonds are being repaid over 25 years through water usage fees. 5) As part of the EWSP, five existing wells have been rehabilitated for use as emergency domestic water supplies. These wells are the Hale Well (999 Palo Alto Avenue), Rinconada Well (1440 Hopkins Avenue), Peer’s Park Well (1899 Park Boulevard), Matadero Well (635 Matadero Avenue) and Fernando Well (410 Fernando Avenue). http://www.cityofpaloalto.org/gov/depts/utl/eng/water/wells/faq/rehabilitation.asp Additionally, two new wells have been constructed, one at Eleanor Pardee Park and another at (Rinconada) Library / Community Gardens. http://www.cityofpaloalto.org/gov/depts/utl/eng/water/wells/eleanor.asp Two 2015 dewatering sites are within the triangle formed by the two new wells (Eleanor Pardee Park and Library / Community Gardens) and the Rinconada well. See attached Maps B and C or online map. https://www.google.com/maps/d/edit?app=mp&hl=en_US&mid=zW7thpaYaYZI.kXmqQlQL K9iM 6) Methods exist for residential basement construction that do not require dewatering. Residential basements are built in areas of high groundwater in The Netherlands without dewatering, per personal verbal communication with the mayor of Palo Alto’s sister city, Enschede at the Council Meeting on November 2. Map A: Palo Alto Emergency Water Supply Well Map Locations of Palo Alto's Emergency Water Supply Wells, including the Middlefield Well. Basement dewatering sites Emergency Water Supply Wells Rinconada Well Hale Creek Well Peers Park Well Matadero Well Fernando Well Eleanor Pardee Park Well Library Community Gardens Well Historical Wells Middlefield Well Map B: Dewatering_Map 2015 Residential basement construction dewatering sites and emergency water supply well locations 2015 Basement dewatering sites 2133 Webster St 2130 Byron St 713 Southampton Dr 897 Southampton Dr 736 Garland Dr 684 Wellsbury Way 804 Moreno Ave 1812 Bret Harte St 1210 Newell Rd 51 Jordan Pl 2230 Louis Rd 1405 Harker Ave 3832 Grove Ave 1950 Newell Rd Emergency Water Supply Wells Rinconada Well Hale Creek Well Peers Park Well Matadero Well Fernando Well Eleanor Pardee Park Well Library Community Gardens Well Map C: Dewatering_Map 2015 (Community center zoom) Residential basement construction dewatering sites and emergency water supply well locations 2015 Basement dewatering sites 2133 Webster St 2130 Byron St 713 Southampton Dr 897 Southampton Dr 736 Garland Dr 684 Wellsbury Way 804 Moreno Ave 1812 Bret Harte St 1210 Newell Rd 51 Jordan Pl 2230 Louis Rd 1405 Harker Ave 3832 Grove Ave 1950 Newell Rd Emergency Water Supply Wells Rinconada Well Hale Creek Well Peers Park Well Matadero Well Fernando Well Eleanor Pardee Park Well Library Community Gardens Well Attachment F November 2, 2015 To: Palo Alto City Council From: Keith Bennett Save Palo Alto's Groundwater Re: Petitions Attached are petitions signed by 190 individuals specifically requesting a moratorium on new dewatering permits for residential basement construction. The signatures were mostly collected during a short 2 - 3 period in late summer by a handful of volunteers. Name Deborah Baldwin Henry Heller M Smith City Menlo Park Palo Alto Palo Alto Postal Code Signed On 94025 8/6/2015 94303 8/7 /2015 94301 8/7 /2015 City of Palo Alto GROUNDWATER SUPPLY FEASIBILITY STUDY FINAL April 2003 2700 YGNACIO VALLEY ROAD, SUITE 300 • WALNUT CREEK, CALIFORNIA 94598 • (925) 932-1710 • FAX (925) 930-0208 H:\Final\PaloAlto_WCO\6589A00\Rpt\GWSupplyFeasibilityStdy-Final.doc CITY OF PALO ALTO GROUNDWATER SUPPLY FEASIBILITY STUDY TABLE OF CONTENTS Page 1.0 INTRODUCTION .......................................................................................................1 1.1 Background .....................................................................................................1 1.2 Well System Rehabilitation and Construction Plans........................................2 2.0 POTENTIAL GROUNDWATER USE IN PALO ALTO...............................................2 3.0 HISTORICAL GROUNDWATER LEVELS AND USE................................................4 4.0 ESTIMATION OF BASIN CAPACITY......................................................................11 4.1 1988 Drought Pumping Analysis ...................................................................12 4.2 Summary of Basin Capacity Estimation ........................................................13 5.0 POSSIBLE PALO ALTO GROUNDWATER SUPPLY SYSTEM.............................14 6.0 POTENTIAL IMPACTS OF GROUNDWATER EXTRACTIONS .............................15 6.1 Subsidence....................................................................................................16 6.2 Saltwater Intrusion.........................................................................................18 6.3 Contaminant Plume Migration .......................................................................19 7.0 SUMMARY...............................................................................................................20 LIST OF TABLES Table 1 Water Level Response ..................................................................................13 LIST OF FIGURES Figure 1 Existing and Proposed City Wells...................................................................3 Figure 2 Hale Well.........................................................................................................5 Figure 3 Matadero Well.................................................................................................6 Figure 4 Fernando Well.................................................................................................7 Figure 5 Peers Park Well ..............................................................................................8 Figure 6 Rinconada Well...............................................................................................9 Figure 7 Meadows Well...............................................................................................10 Figure 8 Historical Data on Water Use, Supply, and Subsidence in San Jose, CA....17 FINAL - April 28, 2003 i H:\Final\PaloAlto_WCO\6589A00\Rpt\GWSupplyFeasibilityStdy-Final.doc City of Palo Alto GROUNDWATER SUPPLY FEASIBILITY STUDY 1.0 INTRODUCTION The Palo Alto Utilities Department (Utilities) is presently examining the issues relating to the use of groundwater. Examining all water supply options, including local sources such as groundwater supply, is a part of good planning practices for the water utility. Utilities has engaged Carollo Engineers, P.C. (Carollo) to prepare a “Groundwater Supply Feasibility Study” (Study) to: “Evaluate whether operating one or two of the City’s water wells as active supplies would cause a significant decrease in groundwater levels or deterioration in groundwater quality.” This Study estimates the groundwater basin capacity in Palo Alto vicinity, identifies a possible well supply system given the basin capacity constraints, and examines whether there is a safe way to use groundwater as a supply source either in drought periods or on an ongoing basis. We have examined the capability of Palo Alto’s groundwater supply and some of the more significant potential impacts of pumping. The three potential impacts that this Study specifically addresses are: • The risk of land surface subsidence; • The risk of groundwater contamination through saltwater intrusion; and • The risk of groundwater contamination through the travel of pollution plumes to the drinking water aquifer. Palo Alto Utilities staff and Carollo have worked closely with staff of the Santa Clara Valley Water District (SCVWD) to ensure that SCVWD staff are fully informed of the analysis methods and findings. At the present time, the City of Palo Alto is NOT planning to use any of the wells for long-term supply. Any change from the planned emergency-only use of the wells would happen only after further detailed analysis, environmental review, extensive discussion with the public, and approvals by both the Utilities Advisory Commission and the City Council. Staff is merely examining the issues related to the groundwater basin and the possible use of the wells in severe droughts or as a supplemental supply in the future. 1.1 Background The City of Palo Alto obtained its well system in 1896. The entire water supply for the City was derived from groundwater until 1938 when it began receiving supplemental supplies from the City and County of San Francisco. In 1962, the wells ceased operating on a FINAL - April 28, 2003 1 H:\Final\PaloAlto_WCO\6589A00\Rpt\GWSupplyFeasibilityStdy-Final.doc continuous basis and San Francisco water became the City’s primary source of supply with the wells maintained as an emergency water supply. The wells were last used in 1988 and 1991 to provide supplemental supplies during a serious drought. At this time, the City maintains five wells as emergency (standby) water sources, but they are in need of rehabilitation. 1.2 Well System Rehabilitation and Construction Plans The City is presently implementing plans to rehabilitate the five existing wells and build three new wells. These improvements are part of a larger Water System Capital Improvement Plan, which was developed as a result of extensive study completed in 1999 (1999 Study). The primary purpose of the well rehabilitation and construction plans is to provide necessary emergency water supplies in the event of a complete cutoff from the SFPUC water supplies. The overall water CIP has been reviewed and approved by both the Utilities Advisory Commission and the Palo Alto City Council. Funds for the improvements are included in the five-year Water Capital Improvement Program Budget. 2.0 POTENTIAL GROUNDWATER USE IN PALO ALTO The imported water purchased from the SFPUC has been a reliable supply for 40 years. There is growing concern, however, that this supply may be jeopardized either partially or completely by a number of factors. For example, the SFPUC supply was rendered unavailable once in 1995 and again in 1998 due to water quality concerns.1 In addition, recent studies conducted by the SFPUC have identified a number of system vulnerabilities that could cut off the water supply for up to 60 days in the event of a serious emergency.2 In regards to long-term reliability, the SFPUC supply is insufficient to meet the current and forecasted needs of the users of the regional system it operates. Droughts in 1976-77 and 1987-1992 that resulted in the rationing of supplies clearly illustrates this fact. The SFPUC’s Water Supply Master Plan (WSMP) recognized that on a long-term basis, its supplies are inadequate. The WSMP identified the system’s yield as 239 mgd while current demand is greater than 260 mgd and the demand estimate for 2030 is 303 mgd, or a shortfall in supplies of 64 mgd. Thus, it is prudent for the City to evaluate its options for improving the reliability of its water supply. The location of the City’s wells is shown in Figure 1. These wells may have potential uses beyond supplying water during SFPUC outages. If the City Council decided, the wells could also help supplement water supplies during drought periods and perhaps even as active 1 “Water Wells, Regional Storage, and Distribution System Study,” page 4-1, prepared for the City of Palo Alto by Carollo Engineers, P.C. dated December 1999. 2 SFPUC fact sheet dated August 5, 2002. FINAL - April 28, 2003 2 H:\Final\PaloAlto_WCO\6589A00\Rpt\GWSupplyFeasibilityStdy-Final.doc LEGEND Pa303f1-6589.cdr Figure 1 EXISTING AND PROPOSED CITY WELLS GROUNDWATER SUPPLY FEASIBILITY STUDY CITY OF PALO ALTO SFPUC Turnout Existing Well Sites Proposed Well Sites No Scale Matadero Well P ers Pa k e r Wlel Rinconada Well Library/ Community Gardens Well El Camino Park Well Palo Alto Medical Facility Well (Roth Site) Middlefield Well Eleanor Park Well Ha e l Well Fernando Well tt tt tt California Turnout Lytton Turnout sources to be regularly used in conjunction with the SFPUC supply. These uses, however, raise significant concerns related to lowering of the groundwater levels. Significantly, depressed groundwater levels can potentially lead to environmental consequences such as subsidence, saltwater intrusion, and contaminant migration. Though there may be other as yet unidentified impacts, these impacts are discussed in this Study as they are considered to be the most significant potential impacts. Currently, the wells are designated standby sources meaning that they can only be used 15 days a year and no more than 5 days consecutively.3 The “standby” designation is made with the California Department of Health Services (DHS) in part because the well water quality exceeds some secondary (aesthetic) drinking water standards. According to the 1999 study, the well water quality exceeds secondary standards for TDS, iron, and manganese. For the purposes of this Study, it is assumed that the water would be used for potable uses. As such, changing the well status with the DHS from “standby” to “active” would require the well water to be treated such that it met all drinking water regulations. Alternatively, the regulations allow the City to distribute water that meets primary drinking water quality standards but exceeds some secondary drinking water quality standards. Proceeding in this manner would require the City to first complete a study acceptable to the California Department of Health Services (DHS) showing consumer acceptance of water not meeting secondary drinking water standards (see California Code of Regulations Title 22, Division 4, Chapter 15, Article 16, Section 64449 for specific details). Customer acceptability, however, may require the City to install sufficient treatment at the wells to be used for drought or active supply such that the water quality is increased significantly or made comparable to the SFPUC water. This issue was covered in the City’s “Long-Term Water Supply Study” dated May 2000 (May 2000 Study). 3.0 HISTORICAL GROUNDWATER LEVELS AND USE The best way to evaluate the effect that pumping has on groundwater levels is to review historical data that show the basin’s response to pumping. Groundwater pumping and water level data from 1950 through 2000 are presented in Figures 2 through 7. All of the water level graphs show a characteristic rise following the switch to SFPUC water in the early 1960s. In general, the graphs show smooth trends in response to recharge, pumping, and drought conditions. There are occasional spikes in the graphs that appear to be outlying, erroneous 3 According to the California Code of Regulations, Title 22, Section 64449, (e) (I), standby wells may be used as active sources without additional water treatment if the City were to conduct a study establishing the customers’ willingness to accept water that doesn’t meet secondary water quality standards. FINAL - April 28, 2003 4 H:\Final\PaloAlto_WCO\6589A00\Rpt\GWSupplyFeasibilityStdy-Final.doc Pa303f2-6589.cdr Figure 2 HALE WELL GROUNDWATER SUPPLY FEASIBILITY STUDY CITY OF PALO ALTO 0 200 400 600 800 1000 1200 1400 1600 1800 19 4 8 19 5 2 19 5 6 19 6 0 19 6 4 19 6 8 19 7 6 19 8 0 19 8 4 19 8 8 19 9 2 19 9 6 20 0 0 An n u a l P r o d u c t i o n ( a c r e - f t / y r ) Wa t e r S u r f a c e E l e v a t i o n ( f e e t ) -240 -220 -200 -180 -160 -140 -120 -100 -80 -60 -40 -20 0 20 40 60 Jan -48 Jan -52 Jan -56 Jan -60 Jan -64 Jan -68 Jan -72 Jan -76 Jan -80 Jan -84 Jan -88 Jan -92 Jan -96 Jan -00 Drought Period Ground Elevation 19 7 2 Pa303f3-6589.cdr 0 200 400 600 800 1000 1200 1400 1600 1800 19 4 8 19 5 2 19 5 6 19 6 0 19 6 4 19 6 8 19 7 2 19 7 6 19 8 0 19 8 4 19 8 8 19 9 2 19 9 6 20 0 0 An n u a l P r o d u c t i o n ( a c r e - f t / y r ) Figure 3 MATADERO WELL CITY OF PALO ALTO GROUNDWATER SUPPLY FEASIBILITY STUDY Wa t e r S u r f a c e E l e v a t i o n ( f e e t ) -240 -220 -200 -180 -160 -140 -120 -100 -80 -60 -40 -20 0 20 40 60 Ja n - 4 8 Ja n - 5 2 Ja n - 5 6 Ja n - 6 0 Ja n - 6 4 Ja n - 6 8 Ja n - 7 2 Ja n - 7 6 Ja n - 8 0 Ja n - 8 4 Ja n - 8 8 Ja n - 9 2 Ja n - 9 6 Ja n - 0 0 Ground Elevation Drought Period Pa303f4-6589.cdr Wa t e r S u r f a c e E l e v a t i o n ( f e e t ) 0 200 400 600 800 1000 1200 1400 1600 1800 19 4 8 19 5 2 19 5 6 19 6 0 19 6 4 19 6 8 19 7 2 19 7 6 19 8 0 19 8 4 19 8 8 19 9 2 19 9 6 20 0 0 An n u a l P r o d u c t i o n ( a c r e - f t / y r ) Figure 4 FERNANDO WELL CITY OF PALO ALTO GROUNDWATER SUPPLY FEASIBILITY STUDY -240 -220 -200 -180 -160 -140 -120 -100 -80 -60 -40 -20 0 20 40 60 Ja n - 4 8 Ja n - 5 2 Ja n - 5 6 Ja n - 6 0 Ja n - 6 4 Ja n - 6 8 Ja n - 7 2 Ja n - 7 6 Ja n - 8 0 Ja n - 8 4 Ja n - 8 8 Ja n - 9 2 Ja n - 9 6 Ja n - 0 0 Ground Elevation Drought Period Pa303f5-6589.cdr Wa t e r S u r f a c e E l e v a t i o n ( f e e t ) 0 200 400 600 800 1000 1200 1400 1600 1800 19 4 8 19 5 2 19 5 6 19 6 0 19 6 4 19 6 8 19 7 2 19 7 6 19 8 0 19 8 4 19 8 8 19 9 2 19 9 6 20 0 0 An n u a l P r o d u c t i o n ( a c r e - f t / y r ) Figure 5 PEERS PARK WELL CITY OF PALO ALTO GROUNDWATER SUPPLY FEASIBILITY STUDY -240 -220 -200 -180 -160 -140 -120 -100 -80 -60 -40 -20 0 20 40 60 Ja n - 4 8 Ja n - 5 2 Ja n - 5 6 Ja n - 6 0 Ja n - 6 4 Ja n - 6 8 Ja n - 7 2 Ja n - 7 6 Ja n - 8 0 Ja n - 8 4 Ja n - 8 8 Ja n - 9 2 Ja n - 9 6 Ja n - 0 0 Drought Period Ground Elevation Pa303f6-6589.cdr Wa t e r S u r f a c e E l e v a t i o n ( f e e t ) 0 200 400 600 800 1000 1200 1400 1600 1800 19 4 8 19 5 2 19 5 6 19 6 0 19 6 4 19 6 8 19 7 2 19 7 6 19 8 0 19 8 4 19 8 8 19 9 2 19 9 6 20 0 0 An n u a l P r o d u c t i o n ( a c r e - f t / y r ) Figure 6 RINCONADA WELL CITY OF PALO ALTO GROUNDWATER SUPPLY FEASIBILITY STUDY -240 -220 -200 -180 -160 -140 -120 -100 -80 -60 -40 -20 0 20 40 60 Ja n - 4 8 Ja n - 5 2 Ja n - 5 6 Ja n - 6 0 Ja n - 6 4 Ja n - 6 8 Ja n - 7 2 Ja n - 7 6 Ja n - 8 0 Ja n - 8 4 Ja n - 8 8 Ja n - 9 2 Ja n - 9 6 Ja n - 0 0 Drought Period Ground Elevation Pa303f7-6589.cdr 0 200 400 600 800 1000 1200 1400 1600 1800 19 4 8 19 5 2 19 5 6 19 6 0 19 6 4 19 6 8 19 7 2 19 7 6 19 8 0 19 8 4 19 8 8 19 9 2 19 9 6 20 0 0 An n u a l P r o d u c t i o n ( a c r e - f t / y r ) Figure 7 MEADOW WELL CITY OF PALO ALTO GROUNDWATER SUPPLY FEASIBILITY STUDY -240 -220 -200 -180 -160 -140 -120 -100 -80 -60 -40 -20 0 20 40 60 Ja n - 4 8 Ja n - 5 2 Ja n - 5 6 Ja n - 6 0 Ja n - 6 4 Ja n - 6 8 Ja n - 7 2 Ja n - 7 6 Ja n - 8 0 Ja n - 8 4 Ja n - 8 8 Ja n - 9 2 Ja n - 9 6 Ja n - 0 0 Wa t e r S u r f a c e E l e v a t i o n ( f e e t ) Drought Period Ground Elevation data. We believe that the occasional spikes in the data are more likely due to equipment error than due to the actual water level. The information presented in the graphs is used in the following section to estimate the groundwater basin capacity in the Palo Alto area. 4.0 ESTIMATION OF BASIN CAPACITY Groundwater resources of the Palo Alto area occur within a much larger aquifer system - the Santa Clara Valley Groundwater Basin. This basin extends as far south as Coyote Narrows and extends north of Palo Alto far into San Mateo County. The system is bounded by uplifted bedrock to the west. To the east, the shallow portion of the aquifer system is bounded by San Francisco Bay. At depth, the aquifer systems of the west side of the valley interfinger under the bay with those of the east. In a large groundwater basin, estimation of the capacity of a smaller area within a basin is difficult because the smaller area is, by definition, unbounded. Groundwater moves freely between basin areas in response to hydraulic head. Therefore, pumping or recharge in one area of the basin has effects on the basin as a whole. Indeed, the impacts of seasonal variations in recharge and in extractions by one or more of Palo Alto’s neighbors are evident in the seasonal rise and fall of the water levels at the Hale Well. Estimating the capacity of the Santa Clara Valley Groundwater Basin in the Palo Alto area requires the definition of an arbitrary area for purposes of evaluating changes in groundwater storage that have occurred. For the purpose of estimating the storage capacity of the groundwater basin in the Palo Alto area, an arbitrary area was defined. This area is bounded on the west by the Hanover Fault zone that is approximately 2,000 feet west of El Camino Real with a similar trend. The Bay was adopted as the eastern boundary. The Hanover Fault zone separates the alluvium of the basin from the bedrock to the west and is a hydrogeologic boundary. For the upper portion of the aquifer system that is in hydraulic communication with the Bay, the Bay is a hydrogeologic boundary. For the deeper portions of the aquifer system, the Bay is not a hydrogeologic boundary but for purposes of definition in this Study, it was adopted as a boundary. The adopted north and south bounds are San Francisquito Creek and San Antonio Road, respectively. The area described by these boundaries is approximately 9,500 acres. Given this defined area, there are several approaches to understanding the capacity or yield. Three methods were evaluated in a previous report to the City entitled “Estimation of Groundwater Basin Capacity” dated December 2002 (December 2002 Report). Those three methods are: 1) Use of the SCVWD calibrated groundwater model; 2) Analysis of basin recovery to cessation of pumpage; and 3) Analysis of basin response to 1988 drought pumping. Once the December 2002 report was completed, the City and Carollo met with representatives of the SCVWD to discuss their questions and concerns regarding the FINAL - April 28, 2003 11 H:\Final\PaloAlto_WCO\6589A00\Rpt\GWSupplyFeasibilityStdy-Final.doc report. One of the outcomes of that meeting was that the first two methods of calculating the groundwater basin capacity were controversial for the following reasons: • The SCVWD groundwater model does not accurately reflect the hydrogeologic conditions at Palo Alto. One of the most important deviations is that the model does not account for any recharge from San Francisquito Creek. In fact, the model has a boundary condition that sets the contribution at zero. As such, using the model to calculate the Palo Alto groundwater basin capacity would likely result in a volume that is erroneously low unless the contribution from San Francisquito Creek is accounted for. Since this data is not available and obtaining it would not only require an extensive hydrogeologic study but would also raise concerns regarding the amount of water that must be left in the creek versus that which can be considered useful for groundwater recharge and later extraction, this method will not be further developed. • Using the groundwater level recovery history to calculate the basin storage capacity yielded values that ranged over two orders of magnitude. SCVWD representatives recommended that the City should perform multiple aquifer tests to improve the accuracy of this data. However, the existing condition of the City’s wells is not readily conducive to performing this type of test. In addition, an aquifer test could readily be performed once the City has completed upgrading its wells. For the present time, this method of estimating the basin capacity will not be pursued. The third method presented in the December 2002 Report for estimating the groundwater basin capacity (i.e. analyzing the water level data gathered during and after pumping in 1988) will be used for the remainder of this Study. 4.1 1988 Drought Pumping Analysis The pumping performed by the City of Palo Alto during the drought provides data to directly estimate the response of the basin to extractions. When the 1987-1992 drought occurred, the City’s wells had been essentially idle since 1962. During this period, water levels in the basin had risen, on average, more than 150 feet. Approximately 90 percent of that recovery took place in the first 10 years following cessation of pumping. The City operated the wells for an approximately 5-month period in 1988 and extracted approximately 1,505 acre-feet. The water level response is shown on Figures 1 through 6. The extraction volume and the observed water level response are summarized in Table 1. Averaging the observed water level declines results in an average decline of approximately 24 feet. This water level decline reflects Palo Alto’s pumpage while also reflecting the simultaneous pumpage from neighboring utilities. Utilizing the observed 24 feet of decline across the assumed 9,500-acre area results in an observed coefficient of storage of approximately 0.007 (dimensionless). This value is quite appropriate for a semi-confined aquifer system, such as the Palo Alto area. FINAL - April 28, 2003 12 H:\Final\PaloAlto_WCO\6589A00\Rpt\GWSupplyFeasibilityStdy-Final.doc Table 1 Water Level Response Groundwater Supply Feasibility Study City of Palo Alto Well 1988 Extractions (acre-feet) Observed Water Level Decline During the 1988 Pumping Period (feet) Matadero 0 18 Hale 398 15 Fernando 0 25 Rinconda 627 25 Middlefield(1) 0 37 Meadows(2) 123 Data Not Available Peers Park(3) 357 Data Not Available Total 1,505 Average = 24 Notes: (1) Middlefield well water level decline likely reflects proximity (about 0.5 mile) to the operating Rinconda well. Similar effects are revealed for the Matadero and Fernando wells indicating that they are in the same basin as the operating wells. (2) The Meadows well was not highly productive and was destroyed following its use in 1988. No water level data was collected after 1988. (3) Water level data for the Peers Park well were not collected between the years 1988 and 1994. Subsequent data shows water level variation similar to the Hale well. Though some groundwater was pumped in 1991, the City ceased significant extractions in December 1988. Of interest is the rapid recovery of the basin after drought conditions, with water levels recovering to pre-pumping levels within 18 months of the extraction period. This also is reflective of the semi-confined nature of the basin and the active recharge efforts of SCVWD. 4.2 Summary of Basin Capacity Estimation From the drought pumping analysis presented above, the following conclusions are drawn regarding the groundwater basin capacity: • Water levels in the Palo Alto area have returned to almost predevelopment levels. Essentially, the groundwater basin in the Palo Alto area is full. • Data from 1988 pumping provides a good example from which to appraise groundwater extraction concepts. 1,500 acre-feet were extracted with limited impact. Water level impacts were short-lived and water levels returned to pre-pumping levels within 18 months. If pumping were performed during a non-drought period, the drawdown would likely be less. Initial drawdown may also be affected by the condition of the existing casings that may cause otherwise productive portions of the aquifer to FINAL - April 28, 2003 13 H:\Final\PaloAlto_WCO\6589A00\Rpt\GWSupplyFeasibilityStdy-Final.doc contribute to the supply. An aquifer test should be conducted following the City’s well construction and rehabilitation efforts to verify the basin’s response to pumping. • Utilizing the data from the 1988 pumping, the extraction of 1,000 acre-feet from the Palo Alto area will result in basin-wide water level declines on the order of 15 feet. Historical experience suggests that the basin will recover to pre-pumping levels within a couple years. It is expected that the water level would decline approximately 25 feet if the City were to extract 1,500 acre-feet in one year. • Occasional depletion of storage resulting from extractions in excess of annual average recharge appears to have minimal adverse impacts. • Seasonal fluctuations in water level record from Hale and Rinconada wells shows that Palo Alto’s pumpage does not occur autonomously. Palo Alto’s water level appears to be impacted by pumpers outside of SCVWD jurisdiction. From the above analysis, it appears that the following groundwater pumping scenario may be safely supported by the groundwater basin: • During drought conditions, 1,500 acre-feet may be withdrawn in one year as long as the aquifer is allowed to recover to pre-pumping levels before pumping is reinitiated. • 500 acre-feet per year may be withdrawn on a year-to-year basis. This practice, however, should be discontinued if the groundwater levels continued to drop to levels that may induce negative environmental impacts (see discussion below on subsidence, saltwater intrusion, and contaminant plume migration). The balance of this study is presented assuming the wells are used to supply 1,500 acre- feet per year (AFA) during droughts, or 500 AFA on a year-to-year or active basis. 5.0 POSSIBLE PALO ALTO GROUNDWATER SUPPLY SYSTEM A well system that could provide this level of service would need a capacity of about 1,000 gallons per minute (gpm) assuming the well is operated continuously for the year during the drought operation (1,500 AFA) or 2,000 gpm if the well is operated for only half the year. In addition, the well site must be able to accommodate the treatment equipment that may be required for this operation (as discussed above), and the environmental and public involvement efforts must conclude that installing treatment is feasible at the site. The May 2000 Study evaluated the existing and proposed well sites in terms of their relative ability to be used as drought or active supplies. That study provided the following ranking of the existing wells: • Hale and Peers Park are the best sites since they are existing wells that are high-capacity and have adequate adjacent space for treatment equipment. FINAL - April 28, 2003 14 H:\Final\PaloAlto_WCO\6589A00\Rpt\GWSupplyFeasibilityStdy-Final.doc • Rinconada is another existing high-capacity well but it lacks the space needed for treatment equipment (unless the equipment is constructed at the location of the existing tennis courts). • Fernando and Matadero do not have adequate capacity or space to be considered feasible active or drought supply sources. At the time the May 2000 Study was written, the City had not yet begun to implement the proposed new well projects. As such, these wells were generally ranked lower than the existing wells. The proposed well sites were ranked as follows: • The El Camino Park site was ranked among the highest because of the size of the site and its proximity to the SFPUC turnouts and the proposed reservoir, which would facilitate blending the well water with SFPUC water before it is delivered to the distribution system. • The Eleanor Pardee Park, the Library/Community Gardens, and the Roth sites (Old Palo Alto Medical Facility) were ranked high because of the size of each of these sites. • The Middlefield Road well site was ranked lowest because it is the most constrained site. It should be emphasized that none of the previous studies included performing either the environmental, public involvement, or other studies that are needed before any of the above sites can be considered truly feasible for well or water treatment facility construction. The City’s current on-going efforts (the Phase I and Phase II Water Supply Capital Improvement Projects) include performing these needed studies. If treatment or blending are not required, any of the City’s wells could be used for drought or active use assuming the required approvals (discussed above) are obtained. If, however, water treatment facilities must be constructed, it would be best to focus on a single site since only one well is needed to be within the identified capacity limits. In addition, focusing the permitting and engineering requirements on a single site is the most cost-effective approach for the City. For a drought supply with treatment, the best existing well sites are Hale and Peers Park. The best proposed well site for a drought supply source with treatment is El Camino, though the Roth site, the Library/Community Gardens, and Eleanor Pardee Park all appear to be feasible sites at this time. 6.0 POTENTIAL IMPACTS OF GROUNDWATER EXTRACTIONS The potential impacts from groundwater extractions derive from changes in groundwater flow directions that result from changes in water levels caused by extractions (pumping). As a preface to the following sections, a brief summary of the history of groundwater levels in the Palo Alto area and the Santa Clara Valley is presented. FINAL - April 28, 2003 15 H:\Final\PaloAlto_WCO\6589A00\Rpt\GWSupplyFeasibilityStdy-Final.doc Groundwater development in the Santa Clara Valley began around 1900. At that time most groundwater wells in the lower elevations of the Santa Clara Valley were artesian – that is, flowing at ground surface. As aggregate extractions increased, water levels fell progressively, subject to climatic variations, reaching depths of as much as 200 feet below ground surface by the early 1960s. With the importation of water to the Santa Clara Valley water levels began to recover. In Palo Alto, water levels are currently at elevations comparable to the 1910s. In wet winters, wells in the Palo Alto area now, if not controlled, flow at ground surface. 6.1 Subsidence One of the potential impacts of groundwater extractions is a decrease in the elevation of the ground surface known as land subsidence. Some of the negative effects of the subsidence are an increased risk of flooding, and damage to infrastructure. Subsidence has been associated to areas with significant groundwater pumping, natural gas production, or oil production. Groundwater is pumped from porous layers with higher hydraulic capacities, i.e., sand and gravel aquifers. As the pumping occurs, water from the confining layers of the aquifers is drawn into the porous aquifer. The aquifers consisting of sand and gravel tend to be incompressible, however, the confining layers may be compressible materials, such as clay. When the groundwater is pumped from these compressible layers the soils compress and the surface elevation starts to drop. This decline in elevation is the result of the physical properties of clay. Clay is comprised of platy minerals that are commonly oriented randomly within the clay deposit. With the removal of fluid and overburden pressure, the clay particles rotate such that they orient parallel with the ground surface. This rotation results in a decrease in vertical thickness of the deposit. The thickness loss is irreversible and the resulting elevation loss is permanent. However, land subsidence can be arrested with increased groundwater levels. In Santa Clara Valley, extractions since the turn of the century resulted in lowering of groundwater levels as much as 200 feet (-160 below sea-level). This lowering of water level resulted in as much as up to 12 feet of subsidence in some locations of the Santa Clara Valley. Subsidence in the Palo Alto area was between 2 and 4 feet. The amount of subsidence in a given area was a function of the amount of water level decline and the local geologic conditions. Areas with shallow bedrock experienced less subsidence than those areas underlain by sediments of substantial thickness. The relationship between water levels, pumpage, imported water supply, and subsidence (as measured in San Jose, CA) is shown on Figure 8. As can be seen in this figure, subsidence generally correlates with periods of falling water levels. Currently, land subsidence has essentially stopped in the Santa Clara Valley as a result of the increased groundwater levels resulting from the use of alternative water supplies and basin management. FINAL - April 28, 2003 16 H:\Final\PaloAlto_WCO\6589A00\Rpt\GWSupplyFeasibilityStdy-Final.doc Pa303f8-6589.cdr Figure 8 HISTORICAL DATA ON WATER USE, SUPPLY, AND SUBSIDENCE IN SAN JOSE, CA GROUNDWATER SUPPLY FEASIBILITY STUDY CITY OF PALO ALTO As discussed above, the loss of elevation associated with subsidence is the result of the reorientation of clay minerals within clay deposits. The compaction of these deposits is essentially irreversible in that when water levels subsequently rise, the clay minerals do not return to their original orientation. However, since these materials are now compacted, the lowering of water levels does not result in significant further compaction. If the City’s wells were used at the capacity limits considered herein, the result would be a transient lowering of water levels to levels less than 25 percent of the historical lows. As such, use of the wells should not result in renewed subsidence. There was no data collection focused on subsidence in the Palo Alto area during the last use of the wells (in 1988 and in 1991). The closest subsidence measurement station maintained by the SCVWD is approximately 10 miles to the south of Palo Alto. However, there are no known anecdotal reports of property damage from renewed subsidence in the Palo Alto area during this period of well use. 6.2 Saltwater Intrusion The movement of saltwater into freshwater aquifers is called saltwater intrusion. Under natural conditions, groundwater flows from areas of recharge on the land to areas of discharge; in coastal areas these are commonly the ocean or the bay. If groundwater extractions result in on-land water level elevations below sea-level, groundwater flow directions reverse and seawater moves from the ocean into coastal aquifers. Although the most common mechanism of seawater intrusion is the lateral movement of seawater through the offshore exposure of the aquifer, seawater intrusion can also occur vertically where depressed water levels in underlying aquifers induce flow from overlying water bodies into the aquifer. If the overlying water body is saline this also results in a type of seawater intrusion. This vertical movement of seawater is often distinguished from lateral movement of seawater by the designation of seawater infiltration. The coastal portion of the Santa Clara Valley aquifer system has historically been impacted by both seawater intrusion and seawater infiltration. Groundwater extractions in the Santa Clara Valley from the turn of the last century until the 1970s resulted in the maintenance of groundwater elevations that were chronically and increasingly below sea-level. As previously mentioned water surface elevations in the Palo Alto dropped at as much as 140 feet below sea-level. This resulted in the on-land movement of seawater from the Bay and in many areas the vertical movement of seawater from Bayland ponds used for salt harvesting and aquaculture. The rate of intrusion/infiltration is governed by the magnitude of the gradient: the steeper the gradient, the more rapid the movement of water through the aquifer. Seawater intrusion and infiltration has been arrested as the result of reduced groundwater extractions, water importation and basin management efforts. While currently arrested, seawater intrusion could be reactivated if water levels were again chronically below sea-level. However, because groundwater moves very slowly, the short- FINAL - April 28, 2003 18 H:\Final\PaloAlto_WCO\6589A00\Rpt\GWSupplyFeasibilityStdy-Final.doc term occurrence of below sea-level water levels, while briefly reversing the flow direction, results in little actual transport of saline groundwater. What transfer does occur, is reversed when flow directions return to normal. This would be the case for either the emergency supply operation for which the wells are currently permitted, or the possible drought supply that is discussed herein. 6.3 Contaminant Plume Migration Groundwater extraction modifies its natural flow direction. In the vicinity of an extraction well, groundwater flow directions are altered both vertically and horizontally resulting in the production of water from the well. Water produced from the well derives from a recharge area surrounding the well, the size and shape of this recharge area being a function of the hydrogeology and well design. This recharge area is commonly referred to as a capture zone of the well. If there are sources of contamination within the capture zone of a well, the well can become contaminated. Within an urbanized setting, the potential sources of groundwater contamination are limited to contamination associated with industrial and commercial land uses. Predominantly this is in the form of leaky underground storage tanks. This would include gas stations, industrial solvents from manufacturing or research, and dry cleaners. As part of the 1999 Study, all sources of contamination known by regulatory agencies were reviewed to determine the risk to City’s existing wells and proposed new well sites. This review revealed very few contamination sites in the areas surrounding the existing and proposed well sites. Most of the existing contamination is in the more industrial portions of the City – those portions west and south of the downtown area. Fortuitously, these areas are not the areas of the City with the most favorable hydrogeologic characteristics for water supply wells. The only identified contaminated sources in the area near the existing or proposed wells were the Shell gas station on Alma Street and the City of Palo Alto Fire Station. These locations are proximate to the proposed El Camino Well, and they both had leaky underground gasoline storage tanks. Both sites have been cleaned up and closed by the Regional Water Quality Control Board. The use of the wells at the capacity limits considered herein will temporarily modify groundwater flow patterns in the vicinity of the wells creating the potential for capture of contaminate plumes. However, based on available records there are no known contaminate plumes within the capture zones of the City’s existing or proposed wells. FINAL - April 28, 2003 19 H:\Final\PaloAlto_WCO\6589A00\Rpt\GWSupplyFeasibilityStdy-Final.doc 7.0 SUMMARY Once refurbished, the City’s five existing wells and the three proposed new wells will provide an excellent standby water source to be used during water supply emergencies such as a shutdown of the SFPUC system. If the Palo Alto City Council decided to use the wells during droughts or as supplemental sources to be used in conjunction with the SFPUC supply, the wells could also provide added benefits in terms of enhancing the reliability and redundancy of the City’s water supply. Any regular use considered in the future, however, should not exceed the reliable capacity of the groundwater basin to avoid such negative environmental consequences such as subsidence, saltwater intrusion, and contaminant migration. Groundwater pumping and water level data for the last 50 years were analyzed to help evaluate the basin’s response to pumping. It should be noted that the data collection and analysis is too limited to draw firm conclusions regarding the reliable basin capacity or sustainable yield that the City may be able to pump on an active basis. In addition, these values could only be derived after analyzing and accounting for natural recharge patterns and the pumping plans of the City’s neighboring utilities. To provide an initial analysis on issues related to other-than-emergency use of the wells, however, the following may be inferred from the data analysis presented herein: • Water levels in the Palo Alto area have returned to almost predevelopment levels. Essentially, the groundwater basin in the Palo Alto area is full. • Depending on the method, estimates of average annual recharge to the basin are between 38 and 3,800 acre-feet. A conservative year-to-year value is likely on the order of 500 AFA. • Data from 1988 pumping provides an example from which to appraise groundwater extraction concepts. 1,500 acre-feet were extracted with limited impact. Water level impacts were short-lived and water levels returned to pre-pumping levels within 18 months. If pumping were performed during a non-drought period, the drawdown would likely be less. These values should be revisited through an aquifer test performed following the City’s well construction and rehabilitation efforts. • Utilizing the data from the 1988 pumping, the extraction of 1,000 acre-feet from the Palo Alto area will result in basin-wide water level declines on the order of 15 feet. Historical experience suggests that depending on climatic conditions, the basin will recover to pre-pumping levels within a year or so. It is expected that the water level would decline approximately 25 feet if the City were to extract 1,500 acre-feet in one year. This decline, however, is not likely to induce significant detrimental environmental impacts since it is much less than the historical drawdown levels and is transient in duration. FINAL - April 28, 2003 20 H:\Final\PaloAlto_WCO\6589A00\Rpt\GWSupplyFeasibilityStdy-Final.doc FINAL - April 28, 2003 21 H:\Final\PaloAlto_WCO\6589A00\Rpt\GWSupplyFeasibilityStdy-Final.doc • Occasional depletion of storage resulting from extractions in excess of annual average recharge appears to have minimal adverse impacts. • Seasonal fluctuations in water level record from Hale and Rinconada wells show that Palo Alto’s pumpage does not occur autonomously. Palo Alto’s water level appears to be impacted by pumpers outside of SCVWD jurisdiction, possibly Menlo Park and East Palo Alto. Under drought conditions, impacts of all local pumpers will be superimposed on water level conditions. The limited analysis suggests that sustained year-to-year extractions of approximately 500 AFA may be possible with negligible water level decline. The actual extraction value would be dependent on the location and depth of the well, how many wells were being operated, and the extent at which neighboring utilities were operating their wells and climatic conditions. If extractions were periodic, as in response to drought or delivery reductions, extractions of 1,500 AFA are possible provided this use is short-lived (one year every three or so years) and the basin is allowed to recover after this use. These estimates were based on the best available data and on general knowledge of groundwater basin behavior. However, the data was limited, as the basin has not been actively pumped since 1963. When more information becomes available both from developing the City’s wells for emergency use and from data collected from the SCVWD’s monitoring well, these estimates will be re-examined. The level of well use described above is not expected to result in reinitiation of subsidence or seawater intrusion or the movement of contaminate plumes for the following reasons: • Reinitiation of significant subsidence would require the dewatering of sediments not dewatered as part of the water level declines of the last century. This would require water level declines of more than 140 feet. As proposed the operation of the wells would result in short term water level declines of between 20 and 30 feet, and dewatering of previously dewatered and compacted sediments. • The year-to-year 500 AFA extraction is intended to not lower groundwater levels substantially, which would preserve the natural groundwater flow direction and prevent saltwater intrusion. The periodic 1,500 AFA well use described above would result in transient occurrence of water levels below sea-level. While water level below sea-level will reverse the seaward gradient, the slow travel time of groundwater provides a buffer from seawater intrusion for transient use. • Operation of the wells would result in temporary disruption of natural flow directions and could effect movement of contaminate plumes. However, no known contaminate plumes exist proximate to the existing or proposed wells sites. City of Palo Alto (ID # 6450) Policy and Services Committee Staff Report Report Type: Agenda Items Meeting Date: 12/15/2015 City of Palo Alto Page 1 Summary Title: Basement Construction Dewatering Update Title: Update on 2016 Next Steps on Basement Construction Dewatering Program and Discussion and Potential Recommendation to Council Regarding Ideas From Committee Members for Additional Project Work From: City Manager Lead Department: Public Works Recommendation Staff recommends that the Policy and Services Committee review and discuss this Staff Report and provide direction. Staff recommends that Group 1 (most time-sensitive) items not return to Policy & Services but that staff develop those recommendations into actionable items for City Council approval, as needed. Our goal would be to return to Council as soon as possible in 2016. Group 2 and 3 items will be brought back to Policy and Services as indicated below. Executive Summary The Policy and Services Committee discussed staff recommendations on investigating program enhancements for basement construction dewatering at its December 1, 2015 meeting (Attachment A: #6268) and heard public testimony (Attachment B: correspondence). The Chair requested that staff summarize the wide range ideas suggested by individual Committee members for follow-up to ensure that all were captured to facilitate potential further discussion by the Committee. (see ID# 6438). The ideas are organized into three groups. Group 1 is a set of potential new requirements for the 2016 construction season that staff recommended on December 1 and would continue to investigate with a goal of swift implementation; Group 2 is for ongoing and potential future work for gathering information about the groundwater basin; and Group 3 is a list of additional (some big) ideas generated at the meeting. With respect to Group 3, staff will return to the Committee in the first half of 2016 with questions that should be considered as part of a further discussion with the Committee about whether to recommend Council consideration and potential direction on any of these. The potential scope of the items could make this a major new initiative and will require careful assessment of the resources necessary to support them, in the context of other work priorities. Assuming the committee accepts the staff recommendations, we will continue to share our City of Palo Alto Page 2 thinking with various stakeholders, as part of our deeper dive into implementation details of Group 1. This is important as new house construction applications are being submitted and it is important that we advise people of our potential planned changes, even before they could go into effect. We expect that some aspects of the recommendations in Group 1 could require specific Council action, so staff attention needs to be directed to work through the details of new requirements so that we can get to Council in early 2016. Discussion Below is a summary of the potential program changes identified by Staff and Committee members at the December 1, 2015 Policy and Services Committee meeting: Group 1: New Basement Dewatering Submittal, Fill Station and Groundwater Use Requirements Staff will continue to work (investigate feasibility and practicality) on the five program enhancements brought forward for consideration at the December 1, 2015 Committee meeting. Staff has added a bit more information to some of the Group 1 recommendations below. 1. Encourage greater fill station use through public outreach and enhanced signage. 2. Strengthen outreach on the water cycle and value of fresh water flows to storm drains, creeks and bay. 3. Refine requirements for Groundwater Use Plans; including maximizing on-site water reuse, at least one day per week water truck hauling service for neighbor and City landscaping, and piping to nearby parks or major users where feasible. 4. Expand fill station specifications to address water pressure issues from multiple concurrent users, including separate pumps for neighbors where needed and sidewalk bridges for hoses. 5. *Broaden the City’s Basement Pumping Guidelines to specifically require a determination of effects on adjacent buildings, infrastructure, trees, or landscaping. Applicants would determine the location of the temporary groundwater cone of depression caused by pumping. Avoidance measures would be required to be included in the determination if offsite effects are anticipated. City Urban Forestry staff may develop guidelines for avoidance measures such as soil enhancements and supplemental watering of neighboring landscaping by project applicants. Additional measures to avoid effects could include adjusting the location, depth or duration of pumping or altering construction methods to minimize or eliminate pumping. Additional considerations raised at the Committee meeting include: Ensuring that fill stations are compliant to specifications Two committee members did not find outreach on the water cycle (2) to be a priority City of Palo Alto Page 3 Staff recommends continuing to investigate these Group 1 program enhancements and then finalize new requirements on basement dewatering for approval, as needed, by the full Council in early 2016. Group 2: Gathering of Groundwater Information and Plans by Palo Alto and its Partner Agencies Continue working with the Santa Clara Valley Water District (Water District) in an already ongoing effort on developing a further understanding of the North County groundwater systems, impacts of groundwater pumping, and opportunities for enhanced groundwater recharge. A Water District key mission is to manage the County’s groundwater; therefore, staff will collaborate closely with the Water District, and the new Council-level Recycled Water Committee. This collaboration may also include working with San Mateo County and its cities to ensure coordination with their development of a groundwater strategic plan. Staff will provide an update on the work plan for this effort to the Policy and Services Committee/(City Council?) in the first quarter of 2016. Group 3: Further Ideas Brought Forward by Individual Policy & Services Committee Members Individual Committee members articulated additional ideas and suggestions. Some of these ideas are multifaceted and complex, and will require sustained effort from staff and assistance from consultants over multiple years. The Committee and Council will need to evaluate priorities and timelines, including the potential that significant new assignments may delay other projects currently underway. Staff will prepare a report for the Policy and Services Committee in the first half of 2016 to discuss these matters and the development of a potential recommendation to Council to direct additional work in one or more of these areas: 1. Charging for discharge of groundwater. The current fee for dewatering to the storm drain system is $80 per month. This effort would consider increased fees to charge for the use of the City’s storm drain system and staff time to manage the dewatering requirements. Committee members suggested exploring whether the fee that the Santa Clara Valley Water District charges for groundwater pumping would be an appropriate baseline. 2. Developing dewatering requirements tailored to drought situation. 3. Developing approaches to ensure that multiple basement pumping is not happening in close proximity (distance and time), and instead is spaced out, essentially allowing only a limited number of basement construction dewatering in one area. 4. Addressing potential damage from dewatering through bonds or insurance. City of Palo Alto Page 4 5. Further study of all pumping activities in the City, including private wells, City Hall garage, Oregon Underpass and other underpasses. 6. Review of basement building and zoning code issues, including FAR adjustments for basements and not allowing two-story basements, or any basement, in areas with shallow groundwater. (Note: Staff’s initial reaction is that utilizing zoning to implement these requirements may be quite difficult because groundwater depth can vary significantly from block to block) 7. Review of impacts of multiple basements on soil absorption and/or the creation of barriers to groundwater flow. 8. Investigation of costs of other construction methods that do not require dewatering, or as much dewatering. 9. Investigate whether Palo Alto should assume a groundwater management leadership role for the North County area. (Including consideration of staff time and cost implications.) 10. In addition, Committee members were interested in how increased use of permeable surfaces may assist with groundwater recharge. (Note: City staff can provide an update on the new stormwater permit requirements for a Green Infrastructure Plan which will require more infiltration of stormwater into the ground rather than discharging it through storm drains via both public and private projects.) In summary, staff will finalize its investigation of Group 1 activities for implementation of potential new requirements starting in 2016. Group 2 is part of an ongoing effort and the Committee and Council will be updated periodically. The Group 3 activities will be brought to the Committee /Council for discussion and direction to study them; Staff is making no estimate on when they could be implemented. Resource Impact Testing and refining the suggested measures to improve the dewatering program or any other measures suggested by the Committee will require significant staff time that is currently allocated to other projects. For the homeowner, these measures may increase basement construction project costs. As mentioned in earlier parts to this report, the Group 1 recommendations have sent staff scurrying to develop final recommendations for action. The Group 3 suggestions are varied and require thoughtful review and potentially large costs. In every case, consideration of our ability to fund and support or absorb the efforts will be required. City of Palo Alto Page 5 Environmental Review The suggested program enhancements are minor modifications to an existing regulatory program designed to be protective of the environment. They would be covered by the general rule that California Environmental Quality Act (CEQA) does not apply where there is no possibility an action could have a significant effect on the environment (State CEQA Guidelines Section 15601(b)(3)). Attachments:  -: Attachment A: 120115 6268 Basement Construction Dewatering (PDF)  -: Attachment B: Correspondence (PDF) City of Palo Alto (ID # 6268) Policy and Services Committee Staff Report Report Type: Agenda Items Meeting Date: 12/1/2015 City of Palo Alto Page 1 Summary Title: Basement Construction Dewatering Title: Consider Tentative Staff Recommendations On Further Requirements for Basement Construction Dewatering Program for 2016 From: City Manager Lead Department: Public Works Recommendation Staff recommends that the Policy & Services Committee direct staff to continue considering five program enhancements, presented in the “Discussion” section below, on basement construction dewatering; and implement those found to be feasible and practical by Spring 2016 to address public concerns raised during the summer of 2015. Executive Summary Over the years, basement construction groundwater pumping has generated public concern in Palo Alto; the ongoing drought and mandated water restrictions this past summer escalating those concerns. Public concerns relate to the apparent wasting of water by discharging to storm drains, potential impacts on groundwater elevation and flow volume, as well as potential impacts on neighboring properties, such as subsidence and cracks, and impacts on trees and other landscaping. In response to these concerns, staff has developed potential enhancements to the City’s existing regulations regarding construction dewatering for review and discussion. Background Basement construction is often required for non-residential, mixed use and multifamily residential buildings, particularly if underground parking is included in City of Palo Alto Page 2 the proposal.1 Additionally, the high value of land and housing in Palo Alto translates into residential property owners seeking to increase their single family homes by constructing basements. Basements constructed in R-1 districts do not count towards allowable square footage (regulated by floor area ratio) and can be quite large when located underneath the entire building footprint (PAMC Section 18.12.090). In 2015, 13 residential sites were conducting basement construction groundwater pumping, with 12 of these sites constructing a basement as well as a second story. Basement construction groundwater pumping occurs when a basement is constructed in areas of shallow groundwater, typically in the neighborhoods closer to the bay or near former creek beds. Perimeter wells are established to draw down the groundwater allowing for construction of the basement. Dewatering continues until enough of the house has been constructed to keep the basement in place. The groundwater being pumped is not potable (i.e. drinkable). The Santa Clara Valley Water District regulates the groundwater basin in Santa Clara County, but does not regulate incidental pumping associated with basement dewatering. Summary of Current Regulations The City of Palo Alto has long regulated several aspects of basement groundwater pumping for both residential and commercial sites. Geotechnical investigations are required for basement construction and dewatering permits must be obtained when groundwater is likely to be encountered and dewatering needed. The permit is used, in part, to prevent pumping from October to April ensuring adequate storm drain system capacity during winter months. City of Palo Alto staff verifies that construction dewatering meets requirements for pH and sediment prior to allowing discharge to the storm drain system, meeting State of California stormwater regulations. Unlike most Bay Area cities, Palo Alto does not allow drains around basement foundations, collecting water and pumping to the storm drain continuously; instead basements must be constructed to be waterproof. 1 In commercial and multi-family zones, basements used for parking are generally not counted towards allowable floor area, but basement space containing usable space is. This report focuses on basements in R-1 neighborhoods which have been the subject of most of the community concern. City of Palo Alto Page 3 In 2008, the Planning and Transportation Commission held hearings on the dewatering issue and a literature review prepared by EIP Associates was presented (Attachment A). In Summer 2014, the City’s Public Works Department (PWD) piloted a truck fill station at a dewatering site to address public concern regarding the apparent wasting of pumped water to storm drains during the drought. Following the success of this first truck fill station, all basement groundwater pumping sites, except those located in known groundwater contamination areas, were required to install truck fill stations based on PWD specifications (Attachment B). The stations accommodate large diameter and garden hoses as well as bucket filling. Outreach includes dewatering sites published and mapped on the City website (http://www.cityofpaloalto.org/gov/depts/pwd/pollution/recycled_n_other_non _potable_water.asp), informational door hangers provided to contractors for distribution to neighbors of the construction dewatering site (Attachment C), and a Frequently Asked Questions document (Attachment D). Usage tracked with log sheets showed some sites used extensively by neighboring properties, while others saw little use. The City’s water truck utilized dewatering sites for tree and median irrigation. During the summer 2015 staff met with contractors to discuss additional ideas to address public concerns. Contractors advised staff of the uniqueness of Palo Alto in imposing standards on dewatering and requiring use of the pumped groundwater, believing the requirements increase pumping duration and project cost. One contractor stressed users could be injured at the fill stations, leading to potential liability. Other than increasing public outreach, no new solutions to decrease pumping or increase utilization of groundwater were identified. Discussion In Summer 2015, sites beginning the permit process were required to develop a Use Plan to maximize the use of the pumped groundwater. Additional requirements suggested by members of the public include a moratorium on basements until further study is performed, more detailed review of basement construction projects, minimizing pumping by using other methods for dewatering or increasing weight on basement slab, requiring use of all the water being pumped, payment for water pumped and directing water to the sanitary City of Palo Alto Page 4 sewer. See Attachment E for correspondence from the public and Attachment F for a petition submitted regarding the basement construction moratorium. Using adaptive management based on learnings from this past summer, staff is proposing to investigate the following program enhancements for basement dewatering in 2016: 1. Encouraging greater fill station use by distributing more door-hangers and enlisting other public outreach regarding dewatering, fill stations and trees. This will be a contractor requirement and City activity. 2. Strengthening outreach on the water cycle and value of fresh water flows to storm drains, creeks and bay. 3. Refining requirements for contractor Use Plans, including maximizing on- site water use, one day per week water truck hauling service for neighbor and City landscaping and piping to nearby parks or major users where feasible. Contractors will be responsible for implementation of Use Plans. 4. Expanding fill station specifications to address water pressure issues resulting from multiple concurrent users, including separate pumps for neighbors where needed and sidewalk bridges for hoses to reduce tripping hazards. Contractors will be responsible for implementation. 5. Broadening the City’s Basement Pumping Guidelines to specifically require a determination of impacts of groundwater pumping on adjacent buildings, infrastructure and trees or landscaping. Applicants would determine the approximate location of the temporary groundwater cone of depression caused by pumping. Avoidance measures would be required if impacts are anticipated. Urban Forestry staff may develop guidelines for avoidance measures such as soil enhancement and supplemental watering (by project applicant) of neighboring landscaping. Additional measures could include adjusting the location, depth or duration of pumping or altering construction methods. In addition, staff will request assistance from the Santa Clara Valley Water District to continue to evaluate any potential effects of basement pumping on deep City of Palo Alto Page 5 groundwater levels, particularly related to the City of Palo Alto emergency wells. This issue is partially addressed in a previously provided 2003 report to the City by Carollo Engineers (Attachment G). If additional actions by the City are needed, they will be forwarded to the Policy and Services Committee prior to the 2016 construction season, along with the finalization of the above five recommendations. Resource Impact Testing and refining the suggested measures to improve the dewatering program or any other measures suggested by the Committee will require staff time that is currently allocated elsewhere. These measures may increase basement construction project costs. Staff is seeking approval of Staff exploration of the named activities. One of the elements to be explored is the amount of staff time needed for implementation, and whether the additional time can be absorbed into existing staffing levels. While Staff time is not expected to be large, Staff will be reporting back to the Committee on this issue. Environmental Review The suggested program enhancements are minor modifications to an existing regulatory program designed to be protective of the environment. They would be covered by the general rule that California Environmental Quality Act (CEQA) does not apply where there is no possibility an action could have a significant effect on the environment (State CEQA Guidelines Section 15601(b)(3). Attachments:  Attachment A: 2008 Planning and Transportation Division Study Session Regarding Basement Construction Impacts (PDF)  Attachment B: New Aquifer Filling Station Specifications (PDF)  Attachment C: Doorhanger (PDF)  Attachment D: Groundwater Pumping from Building Sites FAQ (PDF)  Attachment E: Correspondence (PDF)  Attachment F: Basement Moratorium Petition (PDF)  Attachment G: Groundwater_Supply Report (PDF) to address zoning criteria for light wells and below grade patios, but the pertinent code section is provided and some of the issues may affect those provisions. DISCUSSION The discussion below summarizes recent basement construction statistics, the issues addressed in the Public Works memo, the existing Public Works dewatering policy, potential impacts on neighboring properties, and the use of concrete in basement construction and its implications for the City's Green Building program. A few options for addressing public concerns are provided at the end of the section. Recent Basement Construction The City's Building Division reports that there were permits for 65 new single family residential basements issued over the past 2 years (through June 30, 2008). In that timeframe, there were a total of 181 new single family home permits, excluding the detached condos for Sterling Park (96 units). Ten (10) of the basements (of the total 65) were constructed for major renovations/rebuilds. Basement construction has increased as compared to prior years, with an average of about 22 bas.ement permits issued from 2001-2004. The Public Works Department estimates that, of the total number of permits for basements in recent years, approximately 5 per year require dewatering permits. In calendar year 2008 thus far, the Department has issued 3 dewatering permits, and does not anticipate issuing any others, given the proximity to the wet weather season. Attachment G provides a map of the depth of groundwater in Palo Alto, as mapped by the Santa Clara Valley Water District. June 9 Public Works Informational Memo The June 9, 2008 Informational Memo from Public Works (Attachment A) addresses many issues raised by the Council, Commission, and the public, including discharge volume of dewatering, pump noise, water table impacts, subsidence, tree impacts, contaminated groundwater migration, discharge of groundwater after basement construction, basement excavation, and storm drain capacity. In some areas of technical impact, such as water table and subsidence impacts, the memo refers to a study prepared by EIP Associates, Inc. in 2004 (Attachment D), which staff feels adequately addresses those specific concerns. Other concerns regarding pump noise, contaminated groundwater contamination, and discharge of groundwater after basement construction, are addressed in the Council memo but not discussed further here. The discussions below focus on the key issues of discharge volumes and dewatering policy, the impacts of basement excavation on neighboring sites, and the green building implications of basement construction. Discharge Volumes The Public Works Department's "Basement Excavation Dewatering and Basement Drainage Rules" (Attachment B) require a dewatering plan and permit for each site where dewatering during basement construction is proposed. Groundwater levels must be identified in a geotechnical report prior to permit review. Drawdown wells are typically installed around the perimeter of the excavation and pump water out of the shallow aquifer to draw down the level of the groundwater so the basement can be constructed without water filling the excavation. Public Works estimates that draw down well systems for dewatering during basement construction can pump approximately 30-50 gallons per minute of water non-stop for 3-6 months or more while City of Palo Alto Page2 the basement is constructed. The rules now have been revised to limit dewatering to the months of April through October. The total volume of water pumped into the storm drain system from a dewatering operation is substantial, typically a few million gallons. However, the groundwater level is re-established rapidly after dewatering ceases and the discharged water ultimately remains within the water regime and may replenish aquifers downstream or may flow to a creek or the Bay. Nevertheless, some water is surely lost in the process and the storm drain system is burdened by the additional flow. The Public Works Department's Basement Exterior Drainage Policy (Attachment C), last revised October 1, 2006, prohibits the use of perforated pipe systems for basement drainage and requires that all new basements be designed so that ongoing discharge after construction is not required (with limited exceptions for basement-level exterior spaces). The key issue for Commission discussion is whether it is appropriate to further limit or prohibit basement construction where dewatering is required. Impacts on Neighboring Properties Another set of concerns about basement construction relates to potential impacts to neighboring properties, including subsidence, effects on trees, and site stability. • Site stability-Residents have reported concerns about the proximity ofbasement excavation to their property line, which might result in erosion or undermining of the property or nearby buildings. Various excavation shoring restrictions exist to protect neighboring sites, and shoring plans are required by the Building Division. The Zoning Code only allows basements below the main structure, so setbacks should be met, but light wells are permitted to encroach up to 3 feet from a side property line (for a distance of not more than 15 feet), and excavation for the basement wall may then extend to the property line. Attachment F outlines the zoning code provisions for basements in the R-1 zone district. • Trees -Tree impacts on the subject property or an adjacent site could occur from either excavation damage to roots or from dewatering to a point where the roots dry out. The Planning Arborist, however, reviews all projects to determine whether basements would adversely impact an adjacent tree's root system, and plans would need to be revised if impacts are identified. The Zoning Code requires that basement design would not adversely impact any mature trees. The Planning Arborist has also noted that water sources for most trees' roots are not as deep as the groundwater table. • Subsidence -Staff believes that subsidence impacts, if any, are negligible from dewatering, as the water table quickly returns to pre-dewatering levels and the duration of dewatering is not long enough for soils to compress. Staff is aware of no demonstrated subsidence impacts from basement construction dewatering, though some residents have maintained that such an impact has occurred. The EIP study and contact with USGS have also indicated negligible impact. The key issue for Commission discussion is whether some change in policy or codes, such as a minimum setback for excavation, would better protect neighboring properties without unduly infringing on the potential for property owners to construct basements. City of Palo Alto Page3 Green Building Regulations and Implications of Basement Construction Basement construction has been identified as a "green building" issue due to the extensive amount of energy required to produce the concrete used for basements. Concrete creates more than 5 percent of the world's C02 emissions, at a rate of about 400 pounds of C02 for each cubic yard of concrete (3 ,900 pounds). The cement component of concrete (7-15 % ) is the major source of greenhouse gas emissions, and about 0.9 pound of C02 is created per pound of cement produced, according to the Portland Cement Association. A second sustainability issue is the amount of water discharged during dewatering during basement construction (discussed above). The City's Green Building regulations (Attachment E) became effective on July 3, 2008. The regulations include requirements to comply with green point rating systems for both nonresidential (Table A) and residential (Table B) development. The definition of "square footage" includes basement square footage, and the green points required for residential development increase with each 70 additional square feet of house size. Thus, the ordinance does not directly limit basement construction, but does require compensation in the form of increased green point rating for a home with a basement. It should also be noted, however, that due to the insulating qualities of the surrounding earth, basements are often more energy efficient than above grade floor space. For the Commission's information, Attachment K is an article that outlines work currently underway by a Stanford professor to produce a "green" cement that would not only eliminate C02 emissions from cement production, but could also use C02 emitted from other sources, reducing those gases as well. A ways off, perhaps, but a potential solution to the adverse impacts of concrete use in basements. The key issue for the Commission is whether there is a basis for either limiting basement construction or requiring further increases in green points criteria for basement construction to minimize the carbon emissions impacts of basements. POTENTIAL OPTIONS Staff believes that the City's review policies generally protect neighboring properties from deleterious effects of basement dewatering and that dewatering does not have substantial effects on groundwater or result in the discharge of contaminated groundwater. However, water discharge from dewatering can be substantial and there may be opportunities for the City to enact policies or regulations to further minimize the loss of water from local sites as an enhanced sustainability effort. Similarly, the City's Green Building regulations already require compensation for basement construction in the form of additional green building measures to achieve the stipulated point totals, but there may be revisions that would provide further green building benefits where basements are constructed or to encourage retention of existing basements in commercial areas. Some of the options available to the City may include, but are not limited to: 1. Continuing to permit basements, with continued staff analysis of technical data and impacts. 2. Prohibiting basement excavation within 3 feet of a low density residential property line. City of Palo Alto Page4 3. Limiting basement construction based on the amount of water to be discharged or further limit the timeframe for basement dewatering. 4. Modifying green building requirements to double basement square footage to determine the number of GreenPoint Rated points required, and/ or allowing reductions for the use of basement construction materials that reduce the embedded energy of concrete. 5. Allowing existing basements for nonresidential properties to be excluded from floor area calculations if restricted to non-habitable uses, even ifthe basement meets Building Code requirements for habitable space. Subsequent to comments by the Commission, staff will return with specific recommendations for policy or code changes to address basement issues. The Commission would then forward these changes to Council for review and approval. ENVIRONMENTAL REVIEW No environmental review is required for a study session. The level of environmental review required, if any, for potential code or policy actions will be determined once those actions are identified. ATTACHMENTS A. June 9, 2008 "Basement Construction and Dewatering Impacts" Informational Memo to City Council from Public Works Department B. Public Works "Basement Excavation Dewatering and Basement Drainage Rules" C. Public Works "Basement Exterior Drainage Policy," dated October 1, 2006 D. "New Basement Construction and the Groundwater Regime in Palo Alto," Technical Memorandum prepared by EIP Associates, Inc., 2004 E. Green Building Tables for Residential and Nonresidential Development F. Section 18.12.090 of the Zoning Ordinance re: Basements in R-1 District G. Map of Depth to First Water, Santa Clara Valley Water District, October 15, 2003 H. May 8, 2008 E-mail from Steve Broadbent I. July 19, 2008 E-mail from David Stonestrom J. April 22, 2008 E-mail from Jody Davidson K. "Green Cement May Set C02 Fate in Concrete." San Francisco Chronicle. September 2, 2008. COURTESY COPIES Architectural Review Board Jody Davidson Steve Broadbent David Stonestrom John Northway Bob Morris, Public Works REVIEWED BY: Julie Caporgno, Chief Planning and Transportation Official DEPARTMENT/DIVISION HEAD APPROVAL: __ ~----·-~--~---· ___ _ City of Palo Alto Curtis Williams Interim Director Page5 To assist Council in understanding the differences between shallow and deep aquifers _(described ·more completely in EIP's·attached report), staff provides the following descriptions. Shallow aquifers are formed by rain seeping through the ground and pooling close to the ground surface. The top surface of the shallow aquifer is called the water table and is typically 10-30 feet below the ground surface in most areas of Palo Alto other than the hills. This is the aquifer that basement excavations may extend into, necessitating dewatering. Shallow aquifer water is nonpotable. as it does not meet drinking water standards. · Deep aquifers are separated from the shallow aquifers by impermeable sediment layers, like rock or clay, called aquicludes that prevent shallow aquifer water from reaching the deep aquifers. In Palo Alto, the deep aquifers are approximately 200 feet below the ground surface. Dewatering basement excavations has virtually no effect on the deep aquifers . . Certain layers of permeable sediment, like sand or gravel, may trap and hold pockets of groundwater temporarily between shallow and deep aquifers, but these are typically not affected by basement dewatering operations. . . Below is a brief summary of the above research organized by community key concerns. Discharge Volume . A soils report is required for all projects with basements or underground garages. This report determines the depth to the shallow aquifer below the ground surface. If a contractor believes the excavation will go into the groundwater, they will typically submit a drawdown well dewatering plan to Public Works. Drawdown wells are· typically installed around the perimeter of the excavation and pump water out of the shallow aquifer to draw down the level of the groundwater so the basement can be constructed without groundwater filling the excavation. These drawdown well systems pump approximately 30-50 gallons per minute into the storm drain system non~stop for 3-6 months while the contractor constructs the basement. The volume of water pumped into the storm ·drain system from a drawdown well dewatering operation is substantial, typically a few million gallons. It could be used as landscaping water, but it is too large a volume for individual use and too impractical to capture and reuse for other use. The water pumped out of the ground is discharged into the storm drains, which typically discharge into the creeks. San Francisquito Creek is a losing creek, meaning that water is lost by seeping through the creek bed and into the shallow aquifers. So, in this case, water pumped out of the shallow aquifers is added back to it. For water pumped into lined creeks, the water flows to the bay and is lost to the aquifer. The volume of groundwater pumped out of an excavation site is a small fraction of the . total volume of the aquifer and does not deplete or lower the aquifer, except, of. course, in the immediate vicinity of the excavation. The USGS reports that due to natural (rain) and manmade (irrigation, leaking sewer pipes, and the SCVWD's groundwater recharge program) methods, more water is recharged into the shallow aquifers than is pumped out of it by all pumping in the Santa Clara Valley. The EIP report also confirmed that the water table is only drawn down CMR:266:08 Page 2of5 locally (within tens of feet of the excavation) and· reestablishes itself quickly after dewatering ceases. Therefore,the cumulative effect ofdewatering on the shallow aquifers is negligible. Pump Noise Dewatering pumps can make excessive noise if installed improperly, and this is a concern for neighboring residents since the pumps run 24 hours a day. Public Works is tightening the requirements for pump operation to eliminate this problem. Water Table Impacts While the City currently prohibits basements in flood zones, there is no blanket prohibition against construction in areas with shallow aquifers. Basements are not typically constructed so deep that they actually go into the water table, but they do ·in some cases. In other cases, the water table might rise up, as at the end of a particularly wet winter, and surround a basement. However, in these cases, the water table level and the flow of the groundwater are not changed due to the presence of basements, as reported by EIP. Subsidence Land settlement, or·subsidence, caused by temporary (such as 6 months) construction dewatering is negligible, as reported by EIP and USGS. For subsidence to occur, dewatering needs to occur over a number of years. Tree Impacts Relative to Water Table Changes The Planning ·Division arborist reports that in most of the developed areas · of Palo Alto the preponderance of absorbing tree roots are not . found in lower soil horizon levels below seven feet Therefore, the majority of temporary dewatering projects are not expected to impact trees. If a tree's roots are however deep enough and have been determined, on the basis of a certified arborist report or other ·qualified assessment, to be dependent· on the water table, theri the mitigation would be for the , contractor to provide separate irrigation for the tree( s) during the dewatering period. Contaminated Groundwater Migration Citizens have expressed a concern that large volumes of groundwater being pumped out of the aquifers might cause nearby contaminated groundwater plumes to migrate towards the pumping site. When an application is submitted, staff checks dewatering sites against known contaminated groundwater plume maps. If a site is within a certain proximity to a known plume, staff requires the water to . be tested for contaminants prior to and during discharge. The contractor must retain an independent testing service, test for the contaminants Public Works specifies, and submit those results to Public Works. If the water is contaminated, as it was in one case near the Stanford Research Park superfund site, it must be treated before it can be released or discharged to the sanitary sewer under permit from Public Works. The CRWQCB is drafting requirements for contractors to test groundwater discharged to the storm drain system. Staff awaits the adopted version of these requirements, scheduled for this summer, and will implement them at that time. To date, there has been no evidence that contaminated groundwater has been discharged into the storm drain system or that contaminated groundwater plumes have migrated. CMR:266:08 Page 3of5 Discharge of Groundwater after Basement Construction A few years ago, Public Works allowed the use of perforated drain pipes to be installed behind basement walls and under basement slabs when the geotechnical engineer reported that groundwater would not ri.se to the level of. these pipes. The pipes are installed . to .capture rainwater that filters through the ground and collects behind basement walls in order to minimize the chance of the water leaking through the walls. The pipes drain, to a sump where a pump then .. pumps the water to the street gutter.· Unfortunately, after some wet. winters, groundwater did rise up to these pipes and was then pumped c~mtinuously into the street gutter for long periods of time, creating a number of public nuisance and safety concerns. Accordingly, Public Works adopted a policy two years ago that prohibits the use of perforated drain pipes· for basements in areas of the City with relatively high groundwater (east of Foothill Expressway) to eliminate •these potential nuisances. Public Works also re.commends that applicants for. new basement projects retain a waterproofing consultant to ensure tile basement does riot leak. . Older basements that were permitted with perforated drain pipes still may occasionally discharge groundwater into the street gutter. Public Works addresses these cases by working with the homeowners to eliminate the discharge, typically accomplished by having the homeowner raise the pump in the sump above the level of the groundwater. Basement Excavation Some residents have expressed a concern that the excavation pit for a basement comes too close to adjacent properties, potentially jeopardizing the stability of these properties. Although this strictly does not relate to dewatering, staff recognizes it as a legitimate concern. As previously mentioned, the Building Division requires geotechnical reports for all projects that involve basements or underground structures. · A standard feature of these ·reports is recommendations . artd requirements from the geotechnical engineer that specify measures . to stabilize ·the excavation during construction. The Building Division inspects all basement construction to ensure conformance with the geotechnical report and to .verify all recommended stabilization measures are implemented. In addition, Building Inspectors will require the contractor to install extra precautionary measures before work can continue. Storm Drain Capacity Staff is concerned that dewatering basement excavations. may take. up too much capacity in the City's storm drain pipes, minimizing the system's ability to accommodate storm water and potentially causing or exacerbating flooding. This is not a concern raised by citizens, nor has there been any incidents where dewatering has caused flooding, but staff is developing some guidelines for wintertime dewatering in an effort to avoid a problem. The draft guidelines currently disallow dewatering during the winter unless an exemption is granted by the Director of Public Works. CONCLUSION Staff has researched and analyzed each of the concerns about dewatering raised by citizens. Based on that research, staff believes that the cumulative effects of dewatering · basement excavations has minimal impacts on the City and that the practice should be allowed to continue. The attached EIP report essentially comes to the same conclusion. The number of residential basements permitted in the City has increased from approximately 20 a year at the start of the decade to approximately 30 a year currently. However, Public Works only issues about 5-10 CMR:266:08 Page 4 of 5 . E. JJl .. ~"fJ: !2~·· ••• ••. . ~ . . .· . . .· .,.....__ ATTACHMENT A A S S 0 .C l A T t:: S Draft Technical Memorandum: Correlation between New Basement Construction and the Groundwater Regime in Palo Alto, California lo ·Statement of the Plannjng and Transportation Commission's concerns.· At the 14 J anua1y 2004 Commission meeting, the planning staff presented a number of . . proposed changes to the existing regulation of basements in the R-1 zones. During the ensuing discussion, several Commission members expressed conc~rns about the impact of basement construction on groundwater levels and flow directions. Eight specific, interrelated issues were identified. II · 111 II II Is groundwater pumping causing or contributing to land subsidence? What are the effects of pumping for months to dewater a basement constmction site? Are basements bemg permitted in some inappropriate areas [where the water table is only a few feet below the ground surface], creating the need for continuous pumping? What groundwater effects occur if water is withdrawn from the water table and pumped into the sewers or creeks? · • . What groundwater diversion effects occur if basement walls are built along • • • creeks and/or perforate aquifers? · What are the effects on landowners adjacent to, and down gradient from, pumping sties? · What are the cumulative effects of basements on the groundwater regime? Can basement regulations be crafted to address the hydro-geology of specific building sites? · . The general concern underly.iiig these issues was expressed by Commissioner Annette Bailson: the Commission does not have the information needed to identify whether these are issues of concern, or to make informed decisions on the issues. The remainder of this technical memorandum seeks to respond to that underlying concern by provide some background information about the listed issues and about groundwater hydrology of the City relative to the constmction of basements. Page 1of7 I, 1.;'·,.':·, .. , '1 I I I . 'II''' ' 1' ·'· ,;>,, s· S 0 C l A T L S 2. Differences. between shallow (surface) and deep (confined) . groundwater aquifers. · Defining the Aquifers An aquiferis a body of geologic material, usually rock or some mixture of gravel, sand, silt and clay, that is sufficiently permeable to conduct groundwater. Some definitions include the stipulation that the body produce an economically significant flow of water before it may be considered an aquifer. For the purposes of this technical memorandum, the broader . . definition is applied to allow for easier discussion ofthe water-bearing formations underlying the City. Of the various types of aquifers, two are of particular interest in this discussion: the shallow or surface aquifer, and the deep or confined aquifer. The relative terms 'shallow' and 'deep' refer to the depth of the aquifer below the surface of the ground (usually expressed as 'number of feet bgs' in hydrology studies). A surface aquifer is so named because it is open to the surface of the ground. Rain falling on the ground surface seeps through the soil (infiltration) to some depth where it pools to form a more or less continuous body of water occupying the spaces between sediment particles or rock fragments (groundwater). The top of this body of groundwater is the water table. In the Santa Clara Plain, which forms the lowlands of Palo Alto, the water table occurs at depths of as little as ten feet below the ground surface. Being open to the surface of the ground, the surface aquifer is subject to the influertces of overlying land cover and land uses. Modern stream channels, such as the numerous reaches of San Francisquito Creek, intersect or overlie the surface aquifer, extracting water from it or adding water to it. Paving and construction create artificially impermeable surfaces that prevent local direct infiltration to the surface aquifer. Cherriical constituents in urban and agricultural runoff enter the surface aquifer through infiltration from channels or detention basins, lowering the quality of the groundwater. Leaking landfill cells, leaking underground stornge tanks, and liquid spills also contribute to the reduction of water quality in the surface aquifer. Although current stewardship has slowed water quality deterioration, the surface aquifer still cannot be used as a source of potable water. A confined aquifer is one tha.t is separated hydrologically from the overlying and underlying sediments and rock and from other aquifers. Usually the separating agent (called an aquiclude) is formed by a layer of impermeable sediment, such as clay, or by iffipermeable . rock, such as unfractured granite. The confined aquifer is not connected directly to the overlying ground surface and is separated from the surface aquifer by an aquiclude. It is, in effect, a separate hydrologic system, gaining water from_ some distant source (i.e., not local Page 2of7 '1.·,'···','',,., 11 1 I I I . :,j1•11 I ''· /\SSOC!AlES rainfall). and transmitting it to some other relatively distant discharge area. Bec.:ause the .. confined·aquifer is ·below, and hydrologically separated from; the surface aquifer, it is, by definition, a deep aquifer, irrespective of the number of feet it is below the ground surface. Several aquifers tnay underlie each other. This is the case beneath the Santa Clara Plain where geologically recent stream-hid (alluvial) gravel, sand, silt, and clay form a sequence of · deposits nearly 1500 feet thick between the foothills of the Coast Ranges and San Francisco . . Bay. Channels of ancient rivers depositing this material have been cut off and filled by succeeding intersecting channels, which, in turn, have been buried by the deposits of more modern channels. In this way a complex series of sediment layers of unconsolidated (loose), partially consolidated (dense), and consolidated (very dense) material has been built up as the Santa Clara Plain~ The layers are discontinuous and of greater or lesser permeability, depending on their density and clay of silt content. A complicating factor in examining such a series of aquifers is that often they are not completely confined. The aquicludes separating the aquifers may not be totally impermeable (in which case· they are called aquitards). allowing water to seep from one aquifer to another. The aquifers may be connected within or outside the local area, arising from a common source or flowing to a common discharge area. The aquifers may be connected artificially through leaks in wells or along pilings passing through the aquifers. Beneath the portion of the Santa Clara Plain in Palo Alto, there is a confining clay layer that separates the surface aquifer from the deeper aquifers, but, on a regional level, this separation attenuates and, eventually, disappears farther south in San Jose .. Being separated from the surface aquifer in this part of the Santa Clara Plain, the confined aquifers beneath the City are not subject to the. direct influences previously described for land cover and land uses above the surface aquifer. To the extent that groundwater migrates from the southern part of the Santa Clara Plain groundwater basin to the northern part, the effects of similar land cover and land uses in areas toward San Jose may affect water quality in the deep aquifers beneath Palo Alto. Construction-period Dewatering Effects . In general, cons~ction-period dewatering effects are limited to the surface aquifer. This would not necessarily be the case for major high-rise construction where foundations and below-grade levels may extend 100 or more feet beneath the ground surface, increasing the . chances of encountering confined aquifers. It is, however, the case for the type of relatively shallow basement construction being considered in the Zoning Ordinance Update. . In the Santa Clara Plain portion of Palo Alto, the uppermost sequence of unconsolidated and partially consolidated alluvium is about 200 feet thick. This sequence contains the Page 3of7 ASSOCJJ,TES surface aquifer~ the base of which is the previously mentioned clay aquiclude identified by the Santa Clara Valley Water District (SCVWD) in its 2001 Groundwater Management Plan. The general direction of groundwater flow in this area is northeast toward the Bay, so the surface aquifer and_ the _deeper, confined aquifers tend to remain separated in Palo Alto until they reach the vicinity of the Bay margin. The removal of groundwater from an excavation during below-ground-level construction is necessary to provide safety for the construction workers, and .is a prerequisite for wate1proofing the building's foundation and subsurface floors. One method for accomplishing this is to dig a small pit below the base of the foundation excavation, slope the excavation so groundwater drains to the pit, and then pump the water out of the pit and into the storm drainage system .. Another method is to drill temporary wells around the building footprint and pump directly from the groundwater body to the storm drainage system until the local water table drops below the base of the excavation. In either case, groundwater flowing into the area of drawdowrt created by the dewatering process is deflected toward the base of the excavation, whence it is pumped to the storm drainage system. Groundwater beyond the influence of the dewatering process continues to flow normally. Dewatering pumping continues until the foundation and subsmface floors are completed and the excavation is filled. The amount of water deflected depends on the level of the water table, the permeability of the material adjacent to the excavation, and the length of time th~ excavation needs to be kept open and dry. An increase in any of these factors · increases the amount of water deflected. This amount is small when compared to the total volume of available groundwater directly beneath the Santa Clara Plain (see below). Because the deflection is temporary and very localized, and because groundwater levels at the sites recover rapidly once pumping has ceased, there appears to be no discernable long-tetm effect on the surface aquifer. In the areas adjacent to the site being dewatered, the water table would be lowered temporarily by the dewatering process. This effect could extend from several feet to several tens of feet beyond the excavation depending on ·the method used, the level of the water table at the time dewatering began, the permeability of the material adjacent to the excavation, and the length of time the excavation needed to be kept open and dry. The possibility exists that adjacent landscaping could be experience deterioration from reduced ·groundwater availability. Defleetion or Reduction of the rate of Groundwater Flow Although the amount of water pumped from an excavation may appear substantial as it Page 4of7 A ·s S () C l A l · E S. flows along a street to a storm drain inlet, it is small compared to the amount of groundwater directly beneath the Santa Clara Plain. The _SCVWD's current estimate is that there is more than 350,000 acre-feet of groundwater available in the Santa Clara Sub basin . . An excavation dewatering flow of 1 cubic foot per second would deflect 1.98 acre-feet of · water per day. Because groundwaterwoUld be pumped out of the excavation faster than · could flow in, the ~~teration in groundwater flow rate would be less than the rate of de\Vatering. Because t.he resultant groundwater flow ~eflectionis temporary; small, and very localized, there appears to be no discernable long.oterm effect on the ·surface aquifer. . . Because dewatering for basement construction occurs only in the uppermost portion of the surface aquifer, there would be no effect on the deep aquifer. . . .. In a typical 3-month excavation period tlie 1.98 acre:. . .feet per day dewatering flow would amount to 0.05% (one-twentieth of one percent) of the minimum known groundwater resource in the subbasin. No published information about the subbasin's water budget has been found; so any to attempt to predict how quickly the watet would be replaced through recharge would be speculative. It is known, however, that the importation of potable water and the SCVWD controlled recharge program have assisted groundwater levels in the sub basin to rise 200 feet during the last 40 years. Most of that rise has been in the surface aquifer. The implication is that the subbasin is being recharged at a rate substantially higher than the rate of withdrawal from all pumping, including dewatering for basement construction. Consequently,it appears that the amount of flow from one, or even several, dewatering operations would not have long-term effects on the surface aquifer. In the.areas adjacent to the site beingdewatered, the rate and flow directions of the groundwater would be altered temporarily by the dewatering process. Groundwater in the influenced area would move toward the base of the excavation at a rate lower than the rate .·of dewatering discharge. This effect could extend from several feet to several tens of feet . beyond the excavation depending on the method used, the level of the water table at the time dewatering began·,· the permeability of the material adjacent to· the excavation, and the length of time the excavation needed to be kept open and dry. Flow directions and rates would revert to near normal when dewatering ceased. There would be some displacement of groundwater flow around the newly constructed . basement, depending on the permeability of the surrounding soil materials. The volume of space displaced by the basement could be several thousand to severai tens of thousands of cubic feet, which, although small-compared to the volume of the surface ~quifer, could be significant locally, especially if there were other similarly sized basements in the immediate vicinio/. The flow of groundwater would readjust to this condition, possibly altering the level of the water table in the vicinity of the site for· several weeks or months, but is unlikely to experience any major permanent change. The groundwater level in the surface aquifer Page 5 of7 I, ~ .. 1 _I·! I I I I r .. I I:· I I I . 111111 ' 11 ' ~ ASSOCJATES undergoes more significant changes during the rainy season than would be expected from long-term flow deflection caused by basements. Saltwater Intrusion and Subsidence Saltwater intrusion and subsidence in the Santa Clara Subbasin are documented regional effects of the excessive removal of groundwater from the deep aquifer (overdrafting) o~er . many years. This practice was curtailed in the mid-1960s when the importation of potable ·water increased substantially. Smee then, the SCVWD has been recharging the subbasin thereby raising groundwater levels, impeding saltWater infiltration of the sutface aquifer, and virtually eliminating further overdraft-related subsidence (the effects of previops · subsidence cannot be reversed because portions of the deep aquifer have been compressed permartently). Such basin-wide effects could recur only if the deep aquifer became overdrafted again. Because dewatering for basement construction occurs only in the. uppermost portion of the surface aquifer and involves only a small amount of groundwater withdrawal, no effects would occur in the deep aquifer. 3. Palo Alto Public Works Department existing regulatory structure. There are a number of policies in place that provide protection for the City's groundwater resource and for property owners in the vicinity of new basement construction. • • • • • The PublicWorks Department prohibits the long-term pumping ofgroundwater after a basement has been constructed. This eliminates the possibility that the w~ter ·table in the vicinity of the project would be lowered permanently. The Public W or.ks Department requires basements to be waterproofed and strengthened structurally below the expected groundwater level. This eliminates the need for groundwater pumping. The Public Works Department requires permit applicants whose projects would have basements to prepare a geotechnical investigation and report that would determine, among other information, the expected highest groundwater level in the local shallow aquifer. This allows the department to make informed decisions about the advisability of basement construct:lon at a particular site and/ or to _set the conditions under which basement construction may proceed. If dewatering is necessary for basement construction, the Public Works Department sets the dewaterillg permit conditions based on the hydrology of the specific site under consideration. This ensures resource and property protection where it is needed. The Public Works Department allows the removal of seepage water that collects along basement walls above the water table. Normally this removal would need only a minimal amount of pumping, but may need-to be monitored. Page 6of7 A s ·s 0 c r A ·1 E s 4. Recommendation regarding the advisability of codifying groundwater effects in the Zoning O_rdinance Update · The above-listed Public Works Department policies dealing with basement construction and dewate:ring for such·constiuction are intended to prevent.substantial impacts to groundwater, either on an area-wide basis or in the vicinity of the construction site. Although the policies and their associated construction standards appear to address the . . . . issues adequately, it may be advisable for the Public Works Pepartmerit to increase the community's awareness of these issues through an out-reach program .. Because these issues are, essentially, engineering concerns that are site-specific and already covered by existing regulations, there is no need to modify the zoning ordinance with respect to them. Sincerely, George J. Burwasser, EIP Associates EIP ASSOCIATES 353 SACRAMENTO STREET SUITE 1000 SAN FRANCISCO, CALIFORNIA 94111 Telephone 415-362~ 1500 Facsimile 415-362-1954 E-mail .rf@eipas.wdaies.com JJJ/ll/V.eipassodales.com ATTACHMENT B BASEMENT EXCAVATION DEWATERING AND BASEMENT DRAINAGE RULES BASEMENT DRAINAGE: Due to high groundwater throughout much of the City and Public Works prohibiting the pumping and discharging of groundwater, perforated pipe drainage systems at the exterior of the basement walls or under the slab are not allowed for this site. A drainage system is, however, required for all exterior basement-level spaces, such as lightwells, patios or stairwells. This system consists of a sump, a sump pump, a backflow preventer, and a closed pipe from the pump to a dissipation device onsite at least 10 feet from the property line, such as a bubbler box in a landscaped area, so that water can percolate into the soil and/or sheet flow across the site. The device must not allow stagnant water that could become mosquito habitat. Additionally, the plans must show that exterior basement-level spaces are at least 7" below any adjacent windowsills or doorsills to minimize the potential for flooding the basement. Public Works recommends a waterproofing consultant be retained to design and inspect the vapor barrier and waterproofing systems for the basement. BASEMENT SHORING: Shoring for the basement excavation, including tiebacks, must not extend onto adjacent private property or into the City right-of-way without having first obtained written permission from the private property owners and/or an encroachment permit from Public Works. DEWATERING: Basement excavations may require dewatering during construction. Public Works only allows groundwater drawdown well dewatering. Open pit groundwater dewatering is disallowed. Dewatering is only allowed from April through October due to inadequate capacity in our storm drain system. The geotechnical report for this site must list the highest anticipated groundwater level. We recommend a piezometer to be installed in the soil boring. The contractor must determine the depth to groundwater immediately prior to excavation by using the piezometer or by drilling an exploratory hole if the deepest excavation Will be within 3 feet of the highest anticipated groundwater level. If groundwater is within 3 feet of the deepest excavation, a drawdown well dewatering system must be used, or alternatively, the contractor can excavate for the basement and hope not to hit groundwater, but if he does, he must immediately stop all work and install a drawdown well system before he continues to excavate. Public Works may require the water to be tested for contaminants prior to initial discharge and at intervals during dewatering. If testing is required, the contractor must retain an independent testing firm to test the discharge water for the contaminants Public Works specifies and submit the results to Public Works. Public Works reviews and approves dewatering plans as part of a Permit for Construction in the Public Street ("street work permit"). The applicant can include a dewatering plan in the building permit plan set in order to obtain approval of the plan during the building permit review, but the contractor will still be required to obtain a street work permit prior to dewatering. Public Works has a standard dewatering plan sheet that can be used for this purpose and dewatering guidelines are available on Public Works' website. Alternatively, the applicant must include the above dewatering requirements in a note on the site plan. Attachment C PUBLIC WORKS ENGINEERING BASEMENT EXTERIOR DRAINAGE POLICY EFFECTIVE OCTOBER 1, 2006 The Department of Public Works (Public Works) will not permit the use of basement exterior drainage systems consisting of perforated pipes located on the exterior of the basement walls or underneath the slab that collect water which is then pumped to the surface of the ground for discharge, either on-site or off-site, for all City of Palo Alto parcels northeast (the bay side) of Foothill Expressway. Purpose To ensure the public safety and health by preventing the discharge of groundwater into the City gutter system. The discharge of groundwater into the gutter system causes the following public safety, health and nuisance concerns: • gutters are constantly wet and may enhance the growth of algae, thereby creating a slippery condition for pedestrians, bicyclists and motorists • ponded water at the low spots of the gutter may be slippery to cross for pedestrians, bicyclists and motorists • ponded water in the gutter may become mosquito habitat • ponded water in the gutter may seep through cracks, undermining the subgrade and degrading the gutter and adjacent pavement • groundwater discharge into the City's storm drain system adversely affects others who need to discharge storm water run-off for which the system was designed Background In the past, Public Works allowed perforated pipe basement drainage systems to collect water behind basement walls and under basement slabs and discharge it at the ground. Architects proposed these systems in order to minimize the chances of water leakage through the basement walls and slabs. These systems were permitted with the intention of only collecting and discharging small amounts of rainwater that had seeped down through the soil. For proposed basement drainage systems, Public Works required geotechnical reports that estimated the highest expected groundwater level at the site and Public Works required that the perforated pipes be placed above this level. Recent experience indicates that oftentimes the groundwater level rose above the estimated level and entered the perforated pipes, resulting in the constant pumping of groundwater into the street gutter. Analysis Public Works has obtained a groundwater elevation contour map from the Santa Clara Valley Water District. These maps were established using data from numerous water monitoring wells the SCVWD maintains throughout the City. The contours are the depth below ground to the highest level the main groundwater aquifer has risen to since the monitoring wells were installed. The area of town where there is relatively high groundwater (above 20 feet below-grade) is roughly northeast of Foothill Expressway. The main aquifer depicted in the contour map is not the only source of groundwater. Due to soil properties, groundwater can get trapped between two relatively impermeable layers of soil. These lenses of perched groundwater can occur essentially anywhere and be of any size. Consequently, even though the SCVWD map may indicate a certain area of town has groundwater at 20 feet below-grade, for instance, there may currently be perched water closer to the surface or perched water may occur in the future closer to the surface. Summary Public Works feels that the public safety and health, potential nuisance, and maintenance concerns caused by the discharge of groundwater into street gutters outweigh the developers' desire for perforated pipe drainage systems. Although certain sites may seem appropriate for perforated pipe drainage systems because of current low groundwater levels, higher groundwater levels may occur in the future. Accordingly, Public Works will no longer permit perforated pipe basement drainage systems installed in order to discharge water at the ground surface northeast of Foothill Expressway. Drainage systems are required and will be permitted for basement-level exterior spaces, such as stairwells, lightwells and patios. These drainage systems consist of a sump, a sump pump, and a closed pipe from the pump to a dissipation device onsite, such as a bubbler box in a landscaped area, so that water can percolate into the soil and/or sheet flow across the site. The device must not allow stagnant water to occur that could become mosquito habitat. Additionally, the plans must show 8" of freeboard between the floor of any exterior basement-level space and any adjacent windowsills or doorsills. Glenn Roberts, Director of Public Works S:PWD/ENG/TYPING/Morris/Development/Basement Drainage/Basement Drainage Policy ASSOCIATES 2. Differences between shallow (surface) and deep (confined) groundwater aquifers. Defining the Aquifers An aquifer is a body of geologic material, usually rock or some mixture of gravel, sand, silt and clay, that is sufficiently permeable to conduct groundwater. Some definitions include the stipulation that the body produce an economically significant flow of water before it may be considered an aquifer. For the purposes of this technical memorandum, the broader definition is applied to allow for easier discussion of the water-bearing formations underlying the City. Of the various types of aquifers, two are of particular interest in this discussion: the shallow or surface aquifer, and the deep or confined aquifer. The relative terms 'shallow' and 'deep' refer to the depth of the aquifer below the surface of the ground (usually expressed as 'number of feet bgs' in hydrology studies). A surface aquifer is so named because it is open to the surface of the ground. Rain falling on the ground surface seeps through the soil (infiltration) to some depth where it pools to form a more or less continuous body of water occupying the spaces between sediment particles or rock fragments (groundwater). The top of this body of groundwater is the water table. In the Santa Clara Plain, which forms the lowlands of Palo Alto, the water table occurs at depths of as little as ten feet below the ground surface. Being open to the surface of the ground, the surface aquifer is subject to the influences of overlying land cover and land uses. Modern stream channels, such as the numerous reaches of San Francisquito Creek, intersect or overlie the surface aquifer, extracting water from it or adding water to it. Paving and construction create artificially impermeable surfaces that prevent local direct infiltration to the surface aquifer. Chemical constituents in urban and agricultural runoff enter the surface aquifer through infiltration from channels or detention basins, lowering the quality of the groundwater. Leaking landfill cells, leaking underground storage tanks, and liquid spills also contribute to the reduction of water quality in the surface aquifer. Although current stewardship has slowed water quality deterioration, the surface aquifer still cannot be used as a source of potable water. A confined aquifer is one that is separated hydrologically from the overlying and underlying sediments and rock and from other aquifers. Usually the separating agent (called an aquiclude) is formed by a layer of impermeable sediment, such as clay, or by impermeable rock, such as unfractured granite. The confined aquifer is not connected directly to the overlying ground surface and is separated from the surface aquifer by an aquiclude. It is, in effect, a separate hydrologic system, gaining water from some distant source (i.e., not local Page 2of7 ASSOClATlr:S surface aquifer, the base of which is the previously mentioned clay aquiclude identified by the Santa Clara Valley Water District (SCVWD) in its 2001 Groundwater Management Plan. The general direction of groundwater flow in this area is northeast toward the Bay, so the surface aquifer and the deeper, confined aquifers tend to remain separated in Palo Alto until they reach the vicinity of the Bay margin. The removal of groundwater from an excavation during below-ground-level construction is necessary to provide safety for the construction workers, and is a prerequisite for waterproofing the building's foundation and subsurface floors. One method for accomplishing this is to dig a small pit below the base of the foundation excavation, slope the excavation so groundwater drains to the pit, and then pump the water out of the pit and into the storm drainage system. Another method is to drill temporary wells around the building footprint and pump directly from the groundwater body to the storm drainage system until the local water table drops below the base of the excavation. In either case, groundwater flowing into the area of drawdown created by the dewatering process is deflected toward the base of the excavation, whence it is pumped to the storm drainage system. Groundwater beyond the influence of the dewatering process continues to flow normally. Dewatering pumping continues until the foundation and subsurface floors are completed and the excavation is filled. The amount of water deflected depends on the level of the water table, the permeability of the material adjacent to the excavation, and the length of time the excavation needs to be kept open and dry. An increase in any of these factors increases the amount of water deflected. This amount is small when compared to the total volume of available groundwater directly beneath the Santa Clara Plain (see below). Because the deflection is temporary and very localized, and because groundwater levels at the sites recover rapidly once pumping has ceased, there appears to be no discernable long-term effect on the surface aquifer. In the areas adjacent to the site being dewatered, the water table would be lowered temporarily by the dewatering process. This effect could extend from several feet to several tens of feet beyond the excavation depending on the method used, the level of the water table at the time dewatering began, the permeability of the material adjacent to the excavation, and the length of time the excavation needed to be kept open and dry. The possibility exists that adjacent landscaping could be experience deterioration from reduced groundwater availability. Deflection or Reduction of the rate of Groundwater Flow Although the amount of water pumped from an excavation may appear substantial as it Page 4of7 ASSOCIATES flows along a street to a storm drain inlet, it is small compared to the amount of groundwater directly beneath the Santa Clara Plain. The SCVWD's current estimate is that there is more than 350,000 acre-feet of groundwater available in the Santa Clara Subbasin. An excavation dewatering flow of 1 cubic foot per second would deflect 1.98 acre-feet of water per day. Because groundwater would be pumped out of the excavation faster than could flow in, the alteration in groundwater flow rate would be less than the rate of dewatering. Because the resultant groundwater flow deflection is temporary, small, and very localized, there appears to be no discernable long-term effect on the surface aquifer. Because dewatering for basement construction occurs only in the uppermost portion of the surface aquifer, there would be no effect on the deep aquifer. In a typical 3-month excavation period the 1.98 acre-feet per day dewatering flow would amount to 0.05% (one-twentieth of one percent) of the minimum known groundwater resource in the subbasin. No published information about the subbasin's water budget has been found, so any to attempt to predict how quickly the water would be replaced through recharge would be speculative. It is known, however, that the importation of potable water and the SCVWD controlled recharge program have assisted groundwater levels in the subbasin to rise 200 feet during the last 40 years. Most of that rise has been in the surface aquifer. The implication is that the subbasin is being recharged at a rate substantially higher than the rate of withdrawal from all pumping, including dewatering for basement construction. Consequently, it appears that the amount of flow from one, or even several, dewatering operations would not have long-term effects on the surface aquifer. In the areas adjacent to the site being dewatered, the rate and flow directions of the groundwater would be altered temporarily by the dewatering process. Groundwater in the influenced area would move toward the base of the excavation at a rate lower than the rate of dewatering discharge. This effect could extend from several feet to several tens of feet beyond the excavation depending on the method used, the level of the water table at the time dewatering began, the permeability of the material adjacent to the excavation, and the length of time the excavation needed-to be kept open and dry. Flow directions and rates would revert to near normal when dewatering ceased. There would be some displacement of groundwater flow around the newly constructed basement, depending on the permeability of the surrounding soil materials. The volume of space displaced by the basement could be several thousand to several tens of thousands of cubic feet, which, although small compared to the volume of the surface aquifer, could be significant locally, especially if there were other similarly sized basements in the immediate vicinity. The flow of groundwater would readjust to this condition, possibly altering the level of the water table in the vicinity of the site for several weeks or months, but is unlikely to experience any major permanent change. The groundwater level in the surface aquifer Page 5of7 ASSOCIATES undergoes more significant changes during the rainy season than would be expected from long-term flow deflection caused by basements. Saltwater Intrusion and Subsidence Saltwater intrusion and subsidence in the Santa Clara Subbasin are documented regional effects of the excessive removal of groundwater from the deep aquifer ( overdrafting) over many years. This practice was curtailed in the mid-1960s when the importation of potable water increased substantially. Since then, the SCVWD has been recharging the subbasin thereby raising groundwater levels, impeding saltwater infiltration of the surface aquifer, and virtually eliminating further overdraft-related subsidence (the effects of previous subsidence cannot be reversed because portions of the deep aquifer have been compressed permanently). Such basin-wide effects could recur only if the deep aquifer became overdrafted again. Because dewatering for basement construction occurs only in the uppermost portion of the surface aquifer and involves only a small amount of groundwater withdrawal, no effects would occur in the deep aquifer. 3. Palo Alto Public Works Department existing regulatory structure. There are a number of policies in place that provide protection for the City's groundwater resource and for property owners in the vicinity of new basement construction. • • • • • The Public Works Department prohibits the long-term pumping of groundwater after a basement has been constructed. This eliminates the possibility that the water table in the vicinity of the project would be lowered permanently. The Public Works Department requires basements to be waterproofed and strengthened structurally below the expected groundwater level. This eliminates the need for groundwater pumping. The Public Works Department requires permit applicants whose projects would have basements to prepare a geotechnical investigation and report that would determine, among other information, the expected highest groundwater level in the local shallow aquifer. This allows the department to make informed decisions about the advisability of basement construction at a particular site and/ or to set the conditions under which basement construction may proceed. If dewatering is necessary for basement construction, the Public Works Department sets the dewatering permit conditions based on the hydrology of the specific site under consideration. This ensures resource and property protection where it is needed. The Public Works Department allows the removal of seepage water that collects along basement walls above the water table. Normally this removal would need only a minimal amount of pumping, but may need to be monitored. Page 6of7 attained the compliance threshold as indicated for the Covered Project type as set forth in the Standards for Compliance outlined in Section 18.44.040. (u) "Single-family or two-family residential" means a single detached dwelling unit or two units in a single building. (v) "Square footage," for the purposes of calculating commercial, multi-family residential, and single-family and two-family new construction square ·footage, means all new and replacement square footage, including basement areas (7 feet or greater in height) and garages, except that unconditioned garage space shall only count as 50% of that square footage. Areas demolished shall not be deducted from the total new construction square footage. (w) "Threshold Verification by LEED AP" means verification by a LEED accredited professional certifying that each LEED checklist point listed was verified to meet the requirements to achieve that· point. The LEED AP shall provide supporting information from qualified professionals (e.g. civil engineer, electrical eng~neer, Title 24 consultant, commissioning agent, etc.) to certify compliance with each point on the checklist. Documentation of construction consistent with building plans calculated to achieve energy compliance is sufficient verification in lieu of post- construction commissioning. 18.44.040 Standards for Compliance. The City Council shall establish by resolution, and shall periodically review and update as necessary, Green Building Standards for Compliance. The Standards for Compliance shall include, but are not limited to, the following: (a) The types of projects subject to regulation (Covered Projects); (b) The green building rating system to be applied to the various types of projects; ( c) Minimum thresholds of compliance for various types of projects; and ( d) Timing and methods of verification of compliance with these regulations. The Standards for Compliance shall be approved after recommendation from the Director of Planning and Community Environment, who shall refer the Standards for recommendation by the Architectural Review Board, prior to Council action. 18.44.050 (a) 080604 syn 6050410 Incentives for Compliance. In addition to the required standards for compliance, the City Council may, through ordinance or resolution, enact financial, permit review process, or zoning incentives and/or award or recognition programs to further encourage higher levels of green building compliance for a project. 6 ATTACHMENT F 18.12.090 Basements Basements shall be permitted in areas that are not designated as special flood hazard areas as defined in Chapter 16.52, and are subject to the following regulations: (a) Permitted Basement Area Basements may not extend beyond the building footprint and basements are not allowed below any portion of a structure that extends into required setbacks, except to the extent that the main residence is permitted to extend into the rear yard setback by other provisions of this code. (b) Inclusion as Gross Floor Area Basements shall not be included in the calculation of gross floor area, provided that: (1) basement area is not deemed to be habitable space, such as crawlspace; or Ch. 18.12-Page 15 (Supp. No 13 -10/1/2007) 18.12.100 Regulations for the Single Story Overlay (S) Combining District (D) the cumulative length ofany excavated area or portion thereof that extends into a required side or rear yard does not exceed 15 feet; (E) the owner provides satisfactory evidence to the planning director prior to issuance of a building permit that any features or portions of features that extend into a required side or rear yard will not be harmful to any mature trees on the subject property or on abutting properties; (F) such features have either a drainage system that meets the requirements of the public works department or are substantially sheltered from the rain by a roof overhang or canopy of a permanent nature; (G) any roof overhang or canopy installed pursua~t to subsection (F) is within and is counted toward the site coverage requirements established in Section 18.12.040; (H) such areas are architecturally compatible with the residence; and (I) such areas are screened to off-site views by means oflandscaping and/or fencing as determined appropriate by the planning director. (Ord. 4869 § 14 (Exh. A [part]), 2005) 18.12.090 Basements (2) basement area is deemed to be habitable space but the :finished level of the first floor is no more than three feet above the grade around the perimeter of the building foundation. Basement space used as a second dwe~g unit or portion thereof shall be counted as floor area for the purpose of calculating the maximum size of the unit (but may be excluded from calculations of floor area for the total site). This provision is intended to assure that second units are subordinate in size to the main dwelling and to preclude the development of duplex zoning on the site. ( c) Lightwells, Stairwells, Below Grade Patios and other Excavated Features (1) Lightwells, stairwells, and similar excavated features along the perimeter of the basement shall not affect the measurement of grade for the purposes of determining gross floor area, provided that the following criteria are met: (A) such features are not located in the front of the building; (B) such features shall not exceed 3 feet in width; (C) the cumulative length ofall such features does not exceed 30% of the perimeter of the basement; (D) such features do not extend more than 3 feet into a required side yard nor more than 4 feet into a required rear yard, but where a side yard is less than 6 feet in width, the features shall not encroach closer than 3 feet from the adjacent side property line; (E) the cumulative length of any features or portions of features that extend into a required side or rear yard does not exceed 15 feet in length; (F) the owner provides satisfactory evidence to the planning division prior to issuance of a building permit that any features or portions of features that extend into a required side or rear yard will not be harmful to any mature trees on the subject property or on abutting properties; and (G) such features have either a drainage system that meets the requirements of the public works department or are substantially sheltered from the rain by a roof overhang or canopy of a permanent nature. (2) Below-grade patios, sunken gardens, or similar excavated areas along the perimeter of the basement that exceed the dimensions set forth in subsection (1), are permitted and shall not affect the measurement of grade for the purposes of determining gross floor area, provided that: (A) such areas are not located in the front of the building; (B) all such areas combined do not exceed 2% of the area of the lot or 200 square feet, whichever is greater; that each such area does not exceed 200 square feet; and that each such area is separated from another by a distance of at least 10 feet. Area devoted to required stairway access shall not be included in the 200 square foot limitation. ( C) such features do not extend more than 2 feet into a required side yard nor more than 4 feet into a required rear yard; (Supp. No 13 -10/1/2007) Ch. 18.12-Page 16 ATTACHMENT H May 8, 2008 Steve Broadbent 575 Washington Ave Palo Alto, CA 94301-4046 steve.broadbent@hp.com (650) 521-3958 Honorable Mayor Larry Klein and Council Members City of Palo Alto 250 Hamilton Ave Palo Alto, CA 94301 Via email Re: Green Building Ordinance -Request to Prohibit Basement Construction Honorable Mayor Klein and Council Members: I urge City Council to strengthen City ordinances to prohibit the construction of residential basements, especially basements which require dewatering during construction. The mechanical removal of millions of gallons of groundwater from a construction site has detrimental environmental impacts, and it is disingenuous for a construction project to be considered "green" when it builds a basement in an aquifer. One so called "green" project in Old Palo Alto pulled an estimated 100,000 gallons of water per day from our underground aquifer for a period of 6 months. The Green Building Ordinance under consideration by the City Council does not adequately address this abhorrent practice, and you should amend the ordinance to prohibit basement construction. The Planning & Transportation Division Staff Report for the April 9, 2008, study session on the proposed Green Building Criteria for Private Development recognized basement construction as an issue needing further scrutiny, but staff has failed to pursue satisfactory resolution: "The Commission and the public asked several questions about basements, including a) groundwater discharged, b) the effects of dewatering on groundwater and potential toxic plumes, c) the amount of concrete used, and d) impact on trees. "The Public Works Department has, in the past few years, revised its basement policy to prohibit dewatering basements after construction. Dewatering from basements during construction is still allowed ... Green Building Ordinance -Request to Prohibit Basement Construction Page 1of5 "During the Zoning Ordinance Update, staff commissioned EIP Associates to study the impacts of extensive basement construction on groundwater ... "Staff believes that the use of basements deserves continued scrutiny ... Planning has included provision in the green building criteria that larger homes (including basement floor area) must achieve a greater number of green point credits than smaller homes to help compensate for these resource impacts. Other approaches would require extensive discussion as to when or whether to continue to allow basements ... In recent ordinance discussions, this issue was broached but not pursued." I agree with staff that the use of basements deserves continued scrutiny, but I am disappointed that staff believes green point credits can mitigate the serious impacts basement construction has on our city. Public Works has attempted to dismiss concerns raised by many residents by declaring the impacts as "negligible" or by disavowing specific knowledge. A response that "staff is not aware" should not be considered closure on the issues raised. I take exception to a number of the conclusions put forth by Public Works, and I ask that Council direct staff to reconsider their findings, including but not limited to: • • • • • Impact to neighboring properties Land subsidence Impact on trees and landscaping Waste of water Other detrimental impacts Impact to Neighboring Properties Staff asserts "the study concluded that the impacts of basement construction were negligible on the groundwater system and on the groundwater on neighboring sites." However, the EIP study clearly stated that "In the areas adjacent to the site being dewatered, the rate and flow directions of the groundwater would be altered temporarily by the dewatering process. Groundwater in the influenced area would move toward the base of the excavation ... This effect could extend from several feet to several tens of feet beyond the excavation." My concern is not with the long term impact on the broader Santa Clara Valley groundwater system. My issue is with the site-specific impacts on neighboring properties and the local community. You should not allow macro responses to obscure the micro view of real damage that residential basements cause. There may be no discernable long-term effect on the broader surface aquifer beneath the Santa Clara Plain (macro view), but the prolonged extraction of groundwater from 2164 Green Building Ordinance -Request to Prohibit Basement Construction Webster Street most certainly sucked the groundwater from underneath neighboring properties, including mine (micro view). Although small compared to the volume of the surface aquifer (macro view), the volume of space displaced by a basement could be several tens of thousands of cubic feet which would displace groundwater flow around a newly constructed basement. This could be significant locally (micro view), especially if there were other similarly sized basements in the immediate vicinity (refer to EIP study, page 5). Several residents have horror stories of how the utility basements in their established homes began flooding after the construction of neighboring basements. The Foundation Engineering Handbook, by Hsai-Yang Fang (1991), confirms that" ... the process of dewatering can have side-effects that are harmful to the project under construction, the other facilities nearby, or to the environment ... Improper dewatering ... can cause damage to the structures being built or to adjacent structures." Land Subsidence It is well established that subsidence can occur with groundwater extraction, and the effects of subsidence cannot be reversed where portions of the aquifer have been compressed. "Saltwater intrusion and subsidence in the Santa Clara Subbasin are documented regional effects of the excessive removal of groundwater from the deep aquifer over many years ... the SCVWD has been recharging the subbasin [with potable water] thereby raising groundwater level ... and virtually eliminating further overdraft-related subsidence. Such basin-wide effects could recur only if the deep aquifer became overdrafted again. Because dewatering for basement construction occurs only in the uppermost portion of the surface aquifer and involves only a small amount of groundwater withdraw! [relative to the broader Santa Clara Subbasin], no effects would occur in the deep aquifer." (macro view, refer to EIP study, page 6) Take that "macro view" and bring it up to the surface aquifer underlying my home. My "micro view" is that the drawdown of the groundwater under adjacent properties can and does cause localized subsidence depending on the soil properties in the area. After 7 5 years, my home shouldn't be "settling" any more, but cracks in the plaster and cracks in the pavement developed during the extended dewatering at 2164 Webster. Fang confirms that "ground settlement can occasionally be a problem. Lowering the water table increases the effective stress in the soil. The stress increase is usually modest, and most soils are not affected significantly. But if there are compressible soils in the vicinity ... settlement may occur. Whether the settlement causes significant damage depends on the thickness and consolidation characteristics of the compressible deposit, the depth of drawdown and the duration of pumping, the foundations of the structures within the zone affected, and the type of their construction." Green Building Ordinance -Request to Prohibit Basement Construction Page 3of5 Impact on Trees and Landscaping Not only do I disagree with the Planning Arborist's assertion that "the localized drawdown of the water table during dewatering does not impact trees as their roots do not typically extend to that depth," the EIP study contradicts that assertion: "The possibility exists th'lt adjacent landscaping could experience deterioration from reduced groundwater availability." (refer to EIP study, page 4) Fang also confirms that, "trees ·or other plantings in urban parks may be affected [by dewatering]." Regardless of ~hether tree roots extend into the aquifer or not, the strong pull of drawdown wells during a dewatering operation accelerates the percolation of surface waters and induces drought-like conditions as the soil dries out. Landscape irrigation cannot and should not be considered sufficient mitigation of the drought-like stress inflicted on trees during prolonged dewatering. Waste of Water The City has been studying the use of recycled water for landscape irrigation and other non-potable uses, and a multimillion dollar recycled water project is being considered. The City clearly recognizes the need for water conservation, yet it permits the intentional discharge of millions of gallons of water into our storm drains. That simply doesn't make sense. Public Works has stated that the water pumped from the shallow aquifers typically goes into the storm drain system and then into the creeks, some of which are "losing" creeks, meaning they lose their water back to the shallow aquifers. Public Works asserts that the water is pumped out of the aquifer and then added back to it. But Public Works fails to acknowledge that there are no "losing" creeks in my neighborhood, only engineered channels. • Adobe is all concrete bottom and sides from Hwy 101 to Alma. • Matadero is all concrete bottom and sides from Hwy 101 to Alma, except from Greerto hwy 101 • Barron is all concrete bottom and sides from Hwy 101 to Alma except for about 800 feet just upstream of hwy 101. Concrete channels are not "losing" creeks, and since the natural aquifer flow is from the foothills to the bay, any recharge in the short sections near Hwy 101 does not repleni'Sh the impacted neighborhood. Green Building Ordinance -Request to Prohibit Basement Construction Page4 of5 Other Detrimental Impacts In addition to the unnecessary waste of water, the large volume of water pumped into our storm drains could rupture our aging storm drains, damage streets and underground utilities, and cause a sinkhole to develop. Fang also notes that groundwater in the vicinity of a dewatering operation may be affected "by temporary reduction in the yield of supply wells, by salt water intrusion, or by the expansion of contaminant plumes." Call for Action Mayor Klein and Council Members, I call upon you to take action to restrict residential . basement construction and stop the destructive practice of de watering. Palo Alto wants to be a leader in the Green Building movement. Please amend the Green Building Ordinance to prohibit residential basement construction in Palo Alto. Sincerely, Steve Broadbent Green Building Ordinance -Request to Prohibit Basement Construction Page 5 of 5 Attachment I To: Palo Alto City Council & Planning & Transportation// Re: Dewatering and Basement Construction// Date: July 19, 2008 Honorable Council and Planning and Transportation Committee Members: I am writing to express my concerns about dewatering and basement construction in Palo Alto. I am a professional scientist who has specialized in groundwater hydrology since 1975. I have a BS in Geology from Dickinson College and MS and PhD degrees in Hydrology from Stanford University. I have lived in Palo Alto for 31 years. The following statements are my personal views as a resident. I recently received a call from another Palo Alto resident who purchased an older home near property that was being outfitted with a new house. Excavation for the new home's basement required pumping over 18-million gallons of groundwater 35 feet to land surface, where the water was discarded into the City's storm sewer. According to the caller, this dewatering was carried out with the approval of the City, without the need for a variance. The resident reported that dewatering volumes on the order of millions of gallons have been produced in multiple instances in Palo Alto, as mega basements have become popular. I do not advocate a complete ban on basement construction. Nevertheless, it is clear that large parts of the City are unsuitable for the sorts of basements being built. Projects that require large-scale dewatering should not be allowed. The reasons are simple: (1) Construction of finished (dry) space where any part of that space is below the water table is not advisable and should rarely if ever be allowed. This is necessary not only to protect the newly constructed space, but also to conserve energy and water resources and to prevent overloading of the storm-sewer system. Building codes prohibit basements that would be "subject to flooding." The maximum elevation of the water table during normal rainy seasons, plus a reasonable safety margin, sets the limit for allowable subsurface construction. The need for large-scale dewatering indicates that the structure being built is subject to flooding by groundwater. It is not to anyone's advantage to build basements in unsuitable locations. The City must uphold existing law. (2) Extensive low-lying areas of Palo Alto have shallow water tables, rendering them unsuitable for basements. These areas were prone to flooding prior to "reclamation" projects that "channelized" the downstream reaches of creeks and diked off the Palo Alto Baylands. Sea-level rise from global warming is underway. Sea-level rise will increase water-table elevations in low-elevation areas of the City. Empirical projections based on ICPP scenarios call for 0.5 to 1.4 meters (1.6 to 4.6 feet) of sea-level rise by 2100 ( http://www.sciencemag .orgtcgitcontent1abstract131s1ss10/368). These projections are likely low ( http://www.sciencemag.org/cgi/co~tent/abstract/317/5841/1064). (3) The cone-of-depression from construction dewatering involving extraction wells with only a few feet of horizontal setback from adjoining properties will definitely extend beneath the adjoining properties, with potentially harmful effects from desiccation and differential settling. Palo Alto's soils are heavily textured "adobes" in which the dominant minerals of the fine fraction are montmorillonitic (smectitic) clays. Smectitic clays swell with wetting and shrink with drying. Although modem foundations are designed to avoid 1 of2 To: Palo Alto City Council & Planning & Transportation// Re: Dewatering and Basement Construction// Date: July 19, 2008 failure in soils that shrink and swell, older structures are vulnerable to harm. Dewatering removes water from adjacent properties. It seems prudent to avoid situations where one person's allow.ed dewatering can harm neighboring properties. ( 4) Wasteful consumption of City water resources is a serious issue. Eighteen million gallons of water is about 24-thousand CCF (hundred cubic feet). If applied to a medium- sized City park with 200,000 square feet of irrigated turf-roughly the size of the Mitchell Park soccer fields-the depth of the applied water would be about 12 feet. This represents one hundred weeks of irrigation-five years' worth at 20 irrigation weeks per year. Virtually all water removed during construction ends up in the Bay via lined storm- runoff conveyances. Virtually none of it recharges groundwater or soil moisture. Waste on this scale is unconscionable. ( 5) The possibility of groundwater contaminants being captured by construction wells poses risks at multiple locations throughout the City. As more commercial and industrial areas are rezoned to residential uses, the number of risks increases. Many contaminant plumes are mapped, but others are poorly characterized. Such risks additionally weigh against construction dewatering. In summary, basements must be restricted to areas that have adequately thick unsaturated zones-not all areas of Palo Alto are suitable. Large-scale dewatering should not be permitted. Preservation of property and avoidance of contaminant entrainment are compelling reasons to reassess current practices. The public costs of construction dewatering are unacceptably high. Groundwater is a City resource so precious that no one should be permitted to squander it on grand scales. Prudent restriction of dewatering and basement construction will protect all parties. My only interest in this matter was a promise to a fellow Palo Altan-concerned by groundwater impacts-to assess the situation and communicate my findings to you. With best regards, David A. Stonestrom 1000 S. California Ave. Palo Alto, CA 94306 2 of2 ATTACHMENT J Davldson%20Basement%20Excavatlon%20Photos.htm 9/15/08 5:55 PM From: Williams, Curtis Sent: Monday, September 15, 2008 5:55 PM To: Williams, Curtis Subject: FW: Basement Excavation Photos from: Jodyldavidson@aol.com [mailto:Jodyldavidson@aol.com] sent: Tuesday, April 22, 2008 6: 02 AM To: Williams, Curtis Cc: French, Amy Subject: Basement Excavation Photos Hi Curtis, These are some photos to help explain what I meant when I was trying to explain that the underground footprint of basements was too large. On the smaller size lots, the builders often excavate closer to the allowed set backs. Many often excavate right up to the lot line, and then the builders start putting in the concrete and rebar. I have seen this many times. People in adjacent homes have told me that they believe that the excavation has ruined the foundation of their homes. Since the side yard is all concrete, there is no where for the water to flow, except laterally. This causes flooding to neighboring homes. Additionally, there is simply not enough side yard to allow for planting, and the rear set backs are really too small to allow for tree planting when the tree grows. Basically, the homes on these lots are all home and no yard. I hope that the city will consider reviewing their poli9ies on the allotted size of a new home on these smaller lots. Allowing this building practice has caused a lot of disharmony within our community. Many residents feared that their homes could actually fall into the adjacent excavation site, and in many cases they had to pay for fencing to protect their property. Many felt that the chain link fence was simply not enough protection when the builders excavate to the lot line. Please remember that some of the adjacent older homes on the smaller lots may not have this 6 foot side allowance. Regards, Jody Davidson file:// /S: {PLAN/ PLADIV /Cu rtis/Desktop%2 05.8.08 /Green /Basements/Davldson%20Basement%20Excavation%20Photos.htm Page 1of3 Green cement may set C02 fate in concrete SFGale.mrn Green cement may set C02 fate in concrete Carrie Sturrock, Chronicle Staff Writer Tuesday, September 2, 2008 (09-01) 19:18 PDT --Call him cement man. ~-__ -. _ r e Attachment K Back when Stanford Professor Brent Constantz was 27 he created a high-tech cement that revolutionized bone fracture repair in hospitals worldwide. People who might have died from the complications of breaking their hips lived. Fractured wrists became good as new. Now, 22 years later, he wants to repair the world. Constantz says he has invented a green cement that could eliminate the huge amounts of carbon dioxide spewed into the atmosphere by the manufacturers of the everyday cement used in concrete for buildings, roadways and bridges. His vision of eliminating a large source of the world's greenhouse C0{-2} has gained traction with both investors and environmentalists. Already, venture capitalist Vinod Khosla is backing Constantz's company, the Calera Corp., which has a pilot factory in Moss Landing (Monterey County) churning out cement in small batches. And Carl Pope, executive director of the Sierra Club, says it could be "a game changer" if Constantz can do it quickly, on a big scale and at a decent price. "It changes the nature of the fight against global warming," said Pope, who has talked with Constantz about his work. That might sound like hyperbole, but the reality is that for every ton of ordinary cement, known as Portland cement, a ton of air-polluting carbon dioxide is released during production. Worldwide, 2.5 billion tons of cement are manufactured each year, creating about 5 percent of the Earth's C0{- 2} emissions. When Constantz learned about the high C0{-2} levels, he thought he could do better. After all, the majority of his 60 patents have to do with medical cement. He claims his new approach not only generates zero C0{-2} , but has an added benefit of reducing the amount of C0{-2} power plants emit by sequestering it inside the cement. http://www.sfgate.com/cgi-bin/article.cgi ?f=/c/a/2008/09/02/MNGD 129361.DTL&type=~ri... 9/4/2008 '\ Green cement may set C02 fate in concrete Page 2 of 5 To make traditional cement, limestone is heated to more than 1,000 degrees Celsius, which turns it into lime -the principal ingredient in Portland cement -and C0{-2}, which is released into the air. Constantz uses a different approach, the details of which remains secret pending publication of his patent. At his pilot factory, a former magnesium hydroxide facility that made metal for World War II bombs, magnesium crunches underfoot as Constantz, wearing a pressed, blue button-down shirt with rumpled shorts and sandals, outlines' how the process works. He pointed to two enormous smokestacks billowing flue gases full of carbon dioxide next door at Dynegy, one of the West's biggest.and cleanest power plants. Constantz takes that exhaust gas and bubbles it through seawater pumped from across the highway. The chemical process creates the key ingredient for his green cement and allows him to sequester a half ton of carbon dioxide from the smokestacks in every ton of cement he makes. Constantz believes his cement would tackle global warming on two fronts. It would eliminate the need to heat limestone, which releases C0{-2}. And harmful emissions can be siphoned away from power plants and locked into the cement. The same process can also be used to make an alternative to aggregate -the sand and gravel -that makes up concrete and asphalt, which would sequester even more carbon dioxide from power plants. "The beauty here is we're taking this old industrial polluti~g infrastructure and turning it into something that will save the environment," Constantz said. On a per-person basis, the United States is the world's worst C0{-2} polluter from all sources. But according to the Netherlands Environmental Assessment Agency, China just surpassed the U.S. for total carbon dioxide emissions. China is expected to produce 47 percent of the world's 2.5 billion tons of cement this year, Constantz said. To power its new buildings and sustain its building boom, China constructs at least one coal-fired power plant a week. Each one belches out enough C0{-2} to cancel the benefits of every hybrid on U.S. roadways, said Constantz. A C0{-2} molecule can travel from Beijing to San Francisco in less than a day through atmospheric circulation, he said. So even with California mandating that C0{-2} emissions fall to 1990 levels by 2020, a crisis remains. http://www.sfgate.com/cgi-bin/article.cgi?f=/c/a/2008/09/02/MNGD129361.DTL&type=pri... 9/4/2008 Green cement may set C02 fate in concrete Page 3 of 5 "Carbon dioxide is a global problem, not a regional problem," he said. As far as cost, Constantz estimates his cement would retail for $100 a ton versus roughly $no for Portland. The reason no one invented it before now, he said, is that pe~ple didn't truly understand the dangers of C0{-2} until less than a decade ago. Skeptics question product He has skeptics. Portland cement has a track record of more than 100 years, and any new material would have to get incorporated into building codes, noted Rick Bohan, director of construction and manufacturing technology for the Portland Cement Association in Skokie, Ill. And Tom Pyle, a Caltrans engineer who serves on the cement subgroup of Gov. Arnold Schwarzenegger's Climate Action Team, acknowledged that the technology is possible, but he still wants to examine Constantz's cement. "We hope they have a carbon-reducing viable construction material," he said. "They need to show up with a bag of this so we can test it." Constantz is confident he will prove himself. Initially, he proposes mixing his new invention with Portland cement to ease a conservative industry into a new product. Concrete bigwigs have invited him to speak about Calera cement at their annual World of Concrete in Las Vegas next February. Power plant partnerships Constantz envisions building cement factories next to power plants the world over. A team is scouting out U.S. locations. While Dynegy has supplied Constantz with some flue gas, it hasn't entered into a formal agreement. "As we're looking into the future, we're very interested in technology that would help capture C0{- 2} from the flue gase~ and turn it into a product that offers a benefit," said Dynegy spokesman David Byford. It could be good for business. California has mandated emissions reductions. And Congress is working on legislation that would allow high polluters to buy credits from those with low emissions. Power plants would have a huge incentive to sequester their C0{-2} in cement. But even if Constantz succeeds, the world would still need to do much more to fight C0{-2} emissions, said Chris Field, director of the department of global ecology at the Carnegie Institution http://www.sfgate.com/cgi-bin/article.cgi?f=/c/a/2008/09/02/MNGD129361.DTL&type=pri... 9/4/2008 Green cement may set C02 fate in concrete Page 4 of 5 for Science at Stanford. "It's a big, long complicated game," he said. "As we develop each new segment of the solution we need to embrace it and deploy it and work hard to develop the next segment of the solution." Coral basis of idea Big ideas can form in haphazard ways. The one for bone cement began during a televised football game, when Constantz read an osteoporosis article in the New England Journal of Medicine. Three weeks later, as he studied a coral reef, it occurred to him he could maybe synthesize coral skeletons in human bones. His new cement mimics how coral reefs form, too. Coral uses the magnesium and calcium present in seawater to create carbonates much as he's using C0{-2} and seawater to make carbonate. This latest invention took 18 months to conceive and execute. He feels it's one of the most important things he's ever done. "Climate change is the largest challenge of our generation," he said. Who is brent constantz? Profession: An associate consulting professor in Stanford's department of geological and environmental sciences and founder of the Calera Corp. Created and sold three other companies - Norian Corp., Corazon Technologies Inc. and Skeletal Kinetics. Education: UC Santa Barbara, bachelor's of science (1981); UC Santa Cruz, doctorate (1986) Family: Married and father of four. Pastime: Surfing and rock climbing. Concrete facts about cement 2.5 billion tons of hydraulic cement is produced worldwide annually. Add sand and gravel and that makes more than 9,000 million cubic yards of concrete. That's more than enough concrete to pave an eight-lane highway from the Earth to the moon and back again -twice. If you stayed on the planet, that same eight-lane highway would circle the Earth almost 40 times. Source: Portland Cement Association E-mail Carrie Sturrock at csturrock@sfchronicle.com. http://sfgate.com/cgi-bin/article.cgi?f=/c/a/2008/09/02/MNGD12936I.DTL http://www.sfgate.com/cgi-bin/article.cgi?f=/c/a/2008/09/02/MNGD129361.DTL&type=pri... 9/4/2008 New Aquifer Filling Station Revised 5/26/2015 1 Attachment B Piping System •Arrange piping system to draw water from settling tank being careful to keep the inlet a minimum of 1-2 feet above the bottom of the tank to avoid settlement residue. 2 Locate the Filling Station •Filling station should be located at the property line outside of the construction fence. •Try to locate the station in a place where parked vehicles will not prevent equipment from using it, i.e. on a corner, near at the edge of a driveway, etc. •The filling station should be accessible 24/7. 3 Filling System •Piping runs from the settling tank to a pump capable of providing a minimum of 150-200 gpm. •Outlet of pump runs to lockable box where a standpipe is constructed. •Standpipe contains a valve and outlet fitted with a MALE 2 ½” NH threaded fitting (Fire Hydrant threads). •Inside the box is also located a switched GFI outlet to which the pump is plugged into. When the switch is thrown, the pump turns on. This switched outlet is connected to the construction site’s temporary power. The GFI power outlet may be placed somewhere outside the box, however, the switch should be inside. An “in-use” cover must cover the switch/outlet. •A hose with a male connection shall be stored in the box to allow the water to be used for dust control onsite and for filling tanks without pre-attached hoses or fittings. •A standard hose bibb shall be installed next to the box to allow for gravity-fed filling of smaller “neighbor containers”. 4 Plumbing Signage •The piping outside of the property lines needs to comply with California Plumbing Code Section 603.5.11: •Each outlet on the non-potable waterline shall have posted: “CAUTION: NONPOTABLE WATER, DO NOT DRINK.” This would apply to the hose bibb utilized by neighbors for non-potable purposes. The CPC also requires that exposed portions of the piping be properly identified to the satisfaction of the AHJ. CPC Section 601.2 provides identification for non-potable systems within a building. Although the proposed work is not within a building, the method would adequately identify the piping system. •Section 601.2 Non-Potable Water System Identification •The system shall have a yellow background and black uppercase letters, with the words “CAUTION: NONPOTABLE WATER, DO NOT DRINK.” The required piping identification shall be every 20 feet. The sizing of this lettering should be per CPC Table 601.2.2. •This ‘signage’ comes in the form of stickers and can be easily found online. 5 Fill Point and Discharge Signage •The contractor shall provide a sign according to Public Works specifications and attach it to the outside of the fill station box. •The contractor shall also provide signs to be mounted on a standard “A-frame” barricade to be placed at the dewatering discharge point (usually a catch basin). •Upon completion of dewatering activities, the signs shall be returned to the Public Works Inspector for recycling. 6 Water Station Sign Specifications •These specifications are provided as guidance to produce/order consistent signs: •This sign is aluminum, 20.5” tall by 14” wide. The margin is 0.25” and the border is also 0.25” wide. •“Water Filling Station” is 1.5” tall, Highway Series E font. •“Suitable For Irrigation Purposes” is 0.75” tall, Highway Series B font. •“Do Not Drink” is 1.2” tall, (font as it is part of the symbol). The red circle and slash has a circumference of 4.5”. •The city logo is 4.2” tall by 2.2” wide. •Mount this sign to the water station door. 7 Discharge Point Sign Specifications •These specifications are provided as guidance to produce/order consistent signs: •This sign is aluminum, 24” tall by 24” wide. The margin is 0.375” and the border is 0.625” thick. •“Non-Potable Water Discharge” is 2”tall, Highway Series C font. •“Do Not Drink” is 1.2” tall, (font as it is part of the symbol). The red circle and slash has a circumference of 4.5”. •“To Use This Water…” is 1” tall, Highway Series C font. •The city logo is 4.2” tall by 2.2” wide. •Mount this sign to each side of an A-frame barricade (2 signs total) and place it at the discharge point. 8 Log Sheets •Copies of the following log sheets with a pen shall be attached to the inside of the door of the filling station. •All users of the water filling station shall fill out the form for each use. 9 Log Sheet: Available from Public Works 10 Instructions •Attach a copy of operating instructions to the inside of the box. •Sample instructions: 11 Security •Box should be sturdy and locked with a combination lock. •Provide the lock combination to Public Works – Engineering Services. 12 Inspection •NO DISCHARGE IS ALLOWED WITHOUT A DEWATERING PERMIT. •Once there is groundwater in the settling tank, contact the Environmental Compliance division at (650) 329-2122 or (650) 329-2430 to have the water tested. •Public Works will contact you to inform you of the results. •Once the station is constructed and ready to operate, contact Public Works Inspection at (650) 496-6929 to schedule an inspection. •Once the Inspector has approved of the station installation, Public Works - Engineering Services can issue you the dewatering permit. 13 Important Notification •Contractor shall notify Public Works – Engineering Services ONE WEEK prior to ending dewatering operations. •This will allow City staff to adjust vehicle operations and routes accordingly. 14 Final Notes •The New Aquifer Filling Station is a quickly evolving program - changes, modifications, revisions, and additional conditions, policies, and equipment required may occur at any time. •This handout is a living document and will be revised as the program develops. 15 Questions? •Contact: Mike Nafziger, P.E. Senior Engineer Public Works – Engineering Services (650) 617-3103 mike.nafziger@cityofpaloalto.org Or, Public Works – Engineering Services (650) 329-2152 16 GROUNDWATER PUMPING HAPPENING IN YOUR NEIGHBORHOOD A BASEMENT CONSTRUCTION PROJECT in your neighborhood is pumping water to a stormdrain which leads to a creek. This groundwater cannot be used as drinking water, but it can be pumped to creeks or used for irrigation and dust control. Creeks would ultimately receive this same water if it was not pumped there first. This water is important to the creek and Bay ecosystems. The construction project in your neighborhood offers a residential filling station to access some of this pumped water for use on landscaping. Visit cityofpaloalto.org/recycledwater or call (650) 329-2151, Press option #8 for filling station locations and additional information. Attachment C Updated and posted 8/11/15 Groundwater Pumping From Building Sites Frequently Asked Questions During this time of severe drought, our community is working hard to conserve water. So when community members observe water pumping from construction sites, they want to know what is happening. Here are answers and information to help address the most frequently asked questions we have heard. Q. What is the water that I see running into the storm drain from construction sites? A: During the construction of a basement or underground garage there is sometimes a shallow upper groundwater aquifer that must be temporarily pumped down to allow construction to move forward. This groundwater is not the same water that would be used for drinking. Q: Does the City regulate the pumping and discharge of this water? A: The City permits the discharge of this water to either the storm drain or the sanitary sewer, depending on the water quality. The water is sampled and tested for cloudiness, salinity and acidity. Only very clear, high quality water can go to the storm drain. Temporarily pumping this water is standard practice in areas with groundwater closer to the surface to allow construction to proceed, and no practical alternative has been found. Using the water for irrigation and dust control is possible, and the owners and construction managers are strongly encouraged to find uses for the water. Q: Given the high quality of the water and the severity of the drought, why does the City allow it to be “wasted” by discharging it into the storm drain system? A: The shallow water aquifer being pumped contributes to the flow of our creeks and to the Bay. The groundwater is part of the water cycle for the Bay and enhances the habitat and improves the quality of the creeks and lower South San Attachment D Updated and posted 8/11/15 Francisco Bay. When the shallow aquifer is pumped from basement construction sites into storm drains, it travels a different path, but ends up in the same place: the lower South Bay. So, the water is not wasted, but rather is used to improve the Bay’s habitat and ecosystem, whichever pathway it takes. Q: Can’t this water be used for other purposes? A: The pumped water hasn’t been disinfected or sufficiently tested to drink or use inside the home. Palo Alto‘s emergency drinking water wells tap into a much lower and more protected aquifer. However, the pumped water could be used for irrigation, dust control or similar uses. Palo Alto now requires that contractors have the pumping system fitted with valves and connections so that City crews and others can fill water trucks, street sweepers and other containers. For truck fill stations, the water is tested for acidity and salinity. Private parties can also fill trucks and containers. Such “fill-stations” are now in place at the Palo Alto active basement construction pumping sites listed below:  1405 Harker  1820 Bret Harte  804 Fielding  713 Southampton  3832 Grove  2230 Louis View our map of FREE Water Filling Stations. The site owners and construction managers are encouraged to find more water users, but this will continue to be a small fraction of the total pumped water. Call 650-617-3103 for more information about accessing the fill stations. The volume of water being pumped is large compared to pump truck capacities, but is too small and too shallow to impact the very deep and very large Palo Alto emergency ground water aquifer. Updated and posted 8/11/15 Q. What happens after construction? A: In recent years, Palo Alto has required that structures be built as water tight so that groundwater flows around a building, rather than into it. But a number of older buildings leak, and water is pumped out of the building basement/garage into the storm drain or sanitary sewer. Palo Alto City Hall and 525 University are two of the largest “dischargers”. We have looked at utilizing the water from City Hall, but it has not proven to be cost effective. With new water restrictions in place, this issue is being reexamined once again. However, the City Hall water does go through the storm drain to San Francisquito Creek where it supports habitat, including for fish, especially in the summer when there is no rainfall. Q. What can I do if I see water being wasted? A: The City has hired a part-time Water Waste Coordinator who is specifically dedicated to drought response actions. Need to report a leak, runoff or waste? We have many communications means for you! Please let us know!  Report water use incidents through the City’s PaloAlto311 web or mobile app at cityofpaloalto.org/services/paloalto311/ or go visit to www.cityofpaloalto.org/water to access the link directly.  Contact the City’s Water Waste Coordinator at 650-496-6968 or Martin.Ricci@CityofPaloAlto.org - or -  Call Customer Service at (650) 329-2161 - or –  Email UtilitiesCommunications@CityofPaloAlto.org - or –  Call Utilities Emergency Dispatch at (650) 329-2579 1 10/5/2015 GROUNDWATER PUMPING FOR RESIDENTIAL BASEMENT CONSTRUCTION Frequently Asked Questions Save Palo Alto’s Groundwater, a Community Resource Is groundwater pumped for residential basement construction? Yes. Very large amounts of groundwater from the shallow surface aquifer are pumped to build basements when below ground soils are saturated to provide dry soils using a commercial-scale construction process termed “dewatering.” This technique is now being permitted for constructing residential basements in Palo Alto at a rapidly increasing rate, from an average of five (5) per year (2006 – 2008) to at least 14 this year. Dewatering is used only at those sites with water saturated soils; it is not used at drier sites. Why should I care about groundwater pumping for basement construction? Aquifers and groundwater are a community and public trust resource that, although unseen, play an important role literally supporting structures and infrastructure, draining storm water, and storing and providing moisture for our canopy and plants. What are the effects of removing groundwater? Removing groundwater has a variety of impacts. The forces exerted by groundwater literally support the ground, structures and infrastructure and through capillary action, provide water to our trees. The shallow surface aquifer pressure increases the recharge of the deeper aquifer which is used for irrigation and on which Palo Alto relies for emergency water. Lowering the water table locally causes ground settling. This settling may not be uniform across structures, which may then develop either tight doors or windows, or permanent cracks in foundations, walls or masonry. Settling of even less than an inch is adequate to cause permanent structural damage. Lowering the water table below the seasonal normal fluctuation can cause irreversible compression of the soil (hysteretic soil compaction). What are the effects of lowering the water table on vegetation? Water available for trees and plants is reduced. Soils wick water up, much like sponges, resulting in increased soil moisture several feet above the water table, well into the root zones of trees in much of the area in which dewatering is occurring. What are the impacts of these basements after construction? Both the City of Palo Alto and the Santa Clara Valley Water District provide incentives to install permeable pavement to reduce the amount of storm water entering storm drains and instead soak into the ground, thereby reducing flood risks and recharging aquifers. Basements displace soils that would otherwise be available to absorb rain water, increasing the probability that rain water will flow into the storm drains. Attachment E: Correspondence 2 10/5/2015 Much of Palo Alto is known to have covered gravel beds from former creekbeds. Basements are dams in the unseen rivers that flows through the soils, gravel beds and aquifer beneath Palo Alto. Water needs to flow around these basements. If water cannot flow through the soil fast enough, it will flow above the soil, into the storm drain system, and if the storm drain capacity is exceeded, will flood our streets and properties. The water table/water pressure surrounding a basement is locally higher, in the same manner as water in a flowing river is higher as it flows around an obstacle. The locally higher water table increases the risk that basements in neighboring properties will flood. What can I do if my property is damaged by ground settling caused by groundwater pumping? You’re on your own. You must resolve any damage claims directly with the party that caused the damage. The City will neither order the dewatering to stop nor help you with any damage claims. You may sue. In that case it will be necessary for you to prove that the specific dewatering operation was the cause of the damages, and most likely pay attorney’s fees, which might be reimbursed if you obtain a judgement in your favor. How much water is pumped? In total, it is estimated that 126 million gallons (16,000,000 ft3) of groundwater has or will be pumped out for the construction of 14 basements in Palo Alto in 2015 alone. This is enough to cover a football field 275 feet deep, or fill 50,400 water tank (2,500 gallon) trucks, or provide enough water for 18,000 average Palo Alto residences for the entire month of July, 2015 (equivalent to 40-50% of the state-mandated water conservation goal for all single family residences in Palo Alto for a year) or lower the aquifer by more than 1 foot over an area of 1 square mile. This estimate is based upon the midpoint of City’s estimate of 8 – 10 million gallons (1.2 million cubic feet) per basement. For some basements, more than 20 million gallons is pumped. The amount of water being pumped out is not metered. Where is groundwater pumping occurring? Most of the residential dewatering projects are concentrated in an area of approximately 1 square mile bounded by Webster Street, Louis Road, Colorado Avenue and Channing Avenue, although two are near Middlefield Road further south. From where is the water pumped? Groundwater is typically pumped from 15 to 25 feet below grade, and the groundwater table locally lowered about 2 feet below the bottom of the basement in the area to be excavated. The “bottom” of the basement is generally 10 – 20 feet below grade; some are below sea level. Groundwater is typically pumped at a rate of 50 – 100 gallons per minute continuously for 3 – 6 months. 3 10/5/2015 How much do government agencies collect in fees and permits for construction dewatering? The City of Palo charges approximately $710 for a dewatering permit for 6 months. There is no usage-based fee or assessment for discharging the groundwater pumped out for construction into the storm drain. The total cost to the developer for removing this resource from our aquifer is about $710. How much do residents pay for equivalent water disposal in the storm drain? The Storm Drain Fee for 1 equivalent residential unit (ERU) is $12.63 / month ($151.56 / year). A single dewatering site will dump as much water down the storm drains as the city estimates would go into the storm drains from 480 residences (1 ERU / residence) in a year. Developers are not currently required to pay any additional fees to compensate for the heavy use of the city’s storm drains, even though a “fair share” payment would be $72,748 for a typical basement. How much would Santa Clara Valley Water District charge for a resident to pump non-potable groundwater for irrigation? Santa Clara Valley Water District charges about $600 / acre-foot (43,560 ft3) for a permit to pump groundwater. For the amount of water pumped for a typical basement, the cost would be approximately $16,500. However, a specific exemption from fees is provided for construction dewatering in the shallow aquifer. The fee to builders is zero. Is this groundwater pumping sustainable? The amount of water removed from the aquifer in 2015 is roughly the same as would be available to recharge the aquifer from average (not drought) rainfall for one year, after allowing for runoff and evaporation over an area of 1 square mile. What happens to the pumped groundwater? Approximately 99% is dumped into the storm drains, which then flows to the Bay. Isn’t this pumped water available for irrigation for free? The City requires faucets with hose connections and fill stations for water tank trunks at each dewatering site. There are no requirements for the actual use of the water or the pressure supplied to hose connections for neighborhood use; City policy effectively condones wasting water. In practice, the water is not substantially used. Although the water is of high quality and usable, it is wasted. How and when is the shallow surface groundwater replenished? Primarily from rain and landscape irrigation. Precise recharge rates are not known, but it is believed to be in the range of months to years. Doesn’t the water flow to the Bay anyway, and therefore doesn’t pumping the groundwater improve the environment of the Bay? The aquifer and soils have an important role in transporting storm water to the Bay; more water flows in the unseen river beneath our homes to the Bay over the course of a year than 4 10/5/2015 down the creeks. However, during the summer, there is little flow in the aquifer (there almost no flow in creeks either). Dewatering locally lowers the water table below its normal historical low level, and in some cases below sea level, much as pumping water from a lake could lower the lake level below the outlet level. Hasn’t the City already carefully studied dewatering? The City commissioned a study in 2004, and City staff reviewed the study in 2008 after receiving citizen complaints. Not only are several important issues not addressed, especially related to local effects, there are important differences between the current situation and the time of the original study. Existing City dewatering policy does not anticipate the current number or water volume of dewatering activities within the City. Despite acknowledgment by the study that there will be “temporary and local effects,” the study does not meaningfully address localized impacts, including ground settling, reduced soil moisture for trees, flood risks and storm water management, public compensation for the use of the water, or public policy in an era of climate change. Furthermore, it is incorrectly assumed that short-term effects will not cause permanent damage. From where did this information come? All information in this document is either provided by or derived from the City of Palo Alto, the Santa Clara Valley Water District, USGS topographical maps, the US National Oceanographic and Atmospheric Administration, and materials provided by degreed professionals in soil sciences or hydrology, including documents in the Public Record for the City of Palo Alto. What is the objective of Save Palo Alto’s Groundwater? Palo Alto’s groundwater is a community resource too valuable to freely pump and dump down storm drains simply for the construction of residential basements. We are requesting that the City of Palo Alto enact an immediate moratorium on new permits for the pumping out of our groundwater (“dewatering”) for the construction of residential basements in Palo Alto to further study the effects of dewatering. Dewatering should only be permitted if the study shows negligible impacts, including effects on storm water management and flood risks, and policy is updated to require minimization and complete mitigation of all impacts including requiring full use of the pumped water, payment for use of infrastructure and resources, protection of infrastructures, properties, and the canopy, with all costs to be assumed by the developing party. Is a more detailed document available? Yes, a White Paper including references is available upon request. How do I obtain further information or help with this effort? Send an e-mail with your name and contact information to PAgroundwater@luxsci.net Questions related to the City of Palo Alto policies on permitting the pumping of groundwater for the construction of residential basements Keith Bennett 8/11/2015 Background: My concerns relate to the documented local and transient impacts of new basements and their construction, as well as the permanent impacts of new, large basements on the capability of local soils to handle rainwater during periods of heavy rain, such as has been experienced in 1982 and 1998. My primary concern is not the apparent “waste” of a groundwater resource during a drought (although the amount of water pumped for basement construction is about 10% of the total 24% conservation goal for the City, and report indicates that the surface aquifer being pumped has partly been replenished by imported water from the Delta). Aside from considerations of water quality, I am aware that City has far more water that could be used for irrigation (aside from delivery cost) available from the Water Treatment Plan I have read the 2004 report by EIP, as well as the Staff Report from Curtis Williams dated 9/24/2008. From my reading of these reports, they do not support the conclusions that dewatering on the current scale in Palo Alto is not without significant adverse effects. 1. My understanding is that the two documents listed above, plus soils reports generated from the construction of new buildings, especially buildings with basements are the primary bases for City Policies. The City has prepared a map showing groundwater depth based upon measurements related to construction. This map is available in electronic format. The soils reports from new construction are copyrighted, and may be viewed, but may not be copied. I assume, however, that the City could, if desired, use the information in the soils reports for analysis and modelling purposes. Is my understanding correct and substantially complete? 2. Importance of recharge rates and source on the overall impacts of dewatering on the shallow aquifer. Long term impacts are only negligible if they aren’t offset by recharge. The 2004 Report primarily focuses on the impact on the level of the entire Santa Clara Subbasin surface aquifer, and simply assumes that the water pumped in a year will recharge the next year. Shouldn't the basis for policy consider not only the fraction of the total available aquifer pumped, but also critically consider recharge? The report states the following: a. There are 5 – 10 basements / year constructed with dewatering in Palo Alto, and as the aquifer extends beyond Palo Alto, and other cities may also pump groundwater, the total impacts on the aquifer would be far more significant. It would appear that annually >1% of the aquifer / year or 10% per decade could be depleted. This is not insignificant. To avoid long-term effects, the groundwater must be recharged. b. The subsurface aquifer has been significantly recharged by IMPORTED (i.e. purchased) water (Pg 6, see above): “It is known, however, that the importation of potable water and the SCVWD controlled recharge program have assisted groundwater levels in the subbasin to rise 200 feet in the last 40 years. Most of the rise has been in the surface aquifer.” Note: it is the surface aquifer that is being depleted for dewatering. A January, 2015 document from the SCVWD “Where does our water come from?” (attached) lists three primary sources for groundwater replenishment: “3. Water importation from the Delta, which the district also releases to creeks and recharge ponds for managed groundwater recharge.” Should Palo Alto have a policy that accelerates sending of water to the Bay through groundwater pumping in a drought when replacement supplies are restricted, and furthermore, it appears from public documents that some of the water being pumped for basement construction may, in fact, may in fact be due to SCVWD groundwater recharge programs? Is it reasonable that those dewatering be permitted to use this resource without compensation based upon consumption, i.e. shouldn’t the dewatering amount be metered and charged for example to pay SCVWD for replacement water? 3. Local Effects The EIP report does not provide any basis to support the statement (Pg. 5) regarding the geographical extent of local lowering of the groundwater, and provides no information on the volume profile of the dewatering: a. Assuming a dewatering of 1,000,000 ft3, well below the 7,000,000 ft3 mentioned as typical in the report, but comparable to the lower end of the pumping rates and durations mentioned in the City Staff report corresponds to a volume of 500 x 500 x 8 feet, assuming 50% porosity of the soil. It is clear that some effects must extend well beyond “several tens of feet.” It is also clear that the extent of dewatering must depend upon local soil composition, the depth of pumping and the time (and rate) that the water is removed. b. The 2004 states “local settlement on the order of fractions of an inch could occur.” (pg 7.) Settlement (either temporary or permanent) of even fractions of an inch is adequate to break windows, cause cracks in masonry and plaster, or require doors to be reworked to open and close properly. There is no guarantee that settling will be perfectly level across a nearby property, which is likely the case if a gradient is created in the soil moisture content. Furthermore, the dewatering may extend below the depth of normal “seasonal” water table variation and therefore may affect the supporting capacity of soils between the dewatering depth and the normal “low level” of seasonal water table fluctuation. Reports by homeowners (including the letter in the 2008 Staff Report from the resident at 575 Washington), myself of home damage and a broken water main on N. California several hundred away from, but particularly correlated in time with dewatering events. Could these events provide evidence that dewatering is, in fact, causing at least temporary settlement large enough to affect infrastructure and homes, and that the extent may be further than assumed? c. There is no discussion on the impacts of dewatering on soil moisture (used by plants) above the aquifer. The Santa Clara County Water District leaflet compares soils to a sponge: The relevant question is the extent to which dewatering reduces soil moisture in the surrounding area not whether or not tree or plant roots are below the water level of the aquifer (generally, plants desire moist, but not saturated soils, as they need air, therefore the roots of land plants are generally not in saturated soils. Like sponges, soils wick water upwards from the aquifer. Is soil moisture unchanged above the aquifer when the water table is locally and temporarily lowered? It is important to consider the effects of dewatering in the spring, when soil moisture and the water table are both higher. Isn’t reducing soil moisture earlier in the year in the root zone of plants is more or less equivalent to an artificial drought? Of course, it is possible to compensate for lower soil moisture by watering plants more, however this is quite expensive during conditions such as the current drought, and furthermore the expense is borne by the affected homeowners and city plants (e.g. trees). If dewatering does increase the need for supplemental watering, then, isn’t dewatering in practice indirectly increasing demand for potable water (as it’s 1/10th the price of recycled water). 4. Long term impacts of basements on flooding risks during storms A simple analysis shows that basements extending into a zone of saturated soil (once constructed) will significantly and negatively affect the ability of local soils to hold and drain rainwater during heavy storms, with increased risks of flooding, either in neighboring homes and in wider areas. a. The construction of basement means that there is no soil in the removed volume to absorb rainwater. As basement and lightwell can cover 35% of the lot, and any basement that requires dewatering for construction by definition extends to saturated soils, the local reduction in the capacity of soils to hold rainwater is significant. The result is a locally higher water table / water pressure, at least temporarily until the water can drain. The locally higher water table increases the risk that neighboring properties, especially those with older basements will flood. The 2008 letter from the resident of 575 Washington mentioned the same concern. Complications of basement flooding can be significant. In 1998, basement flooding triggered a fire at 595 N. California (a pilot light was extinguished by the water; the escaped gas then exploded when lit by a different pilot light). Additionally many basements of older homes were flooded. Basements only rarely flood. During the 1998 storm, the saturated water line along Webster St. near N. California was about 3- 4’ below street grade, indicating that there is no significant extra capacity in the soils, at least in some parts of the city. It is likely that soils were saturated closer to the surface in lower areas. If the soils become saturated to the surface, rainwater will no longer be absorbed and instead will flow into the storm drains. If the storm drains cannot handle the additional water, localized street flooding will occur. The City provides rebates for the use of permeable paving materials to reduce the load on the storm drains. This assumes that the soils can absorb the water and release it more slowly. Is the construction of large (and deep) basements in areas that have risk of soil saturation above the basement level consistent with this policy? Is a policy that increases the risk of flooding wise? Is it appropriate for Green Building Certifications? b. Basements are like dams in the unseen river through the soils (and aquifer) beneath Palo Alto, and impede the discharge of water during periods of heavy rain, increasing the level of saturated soils, and the risks of flooding. We would not think of blocking any creek, yet basements are doing so for the channel that carries the most water to the Bay. i. The soils and aquifer under Palo Alto surely carry significantly more water to the Bay than San Francisquito Creek over the course of a year. This can be easily be shown by calculating the volume of water in even 12” of annual rainfall that falls on the area (about 3.3 x 1.8 miles) of Palo Alto between El Camino and San Francisco Bay and comparing the annual volume of water to that which flows in San Francisquito Creek. In addition, the soils and aquifer must carry water from lands west of El Camino, including Stanford and the foothills. ii. The potential of basements to block aquifer / soil water flows is very significant. Basements are now quite large (perhaps covering ½ of the property width) and a very large fraction of new construction (~70% in permitted areas) includes finished basements. Have the impacts of basements on the capacity of our soils to handle rainwater during heavy storms been properly considered? From: Leah Rogers [mailto:leah.rogers@stanfordalumni.org] Sent: Monday, October 26, 2015 6:38 PM To: Council, City; Keith Bennett Subject: re: Per request of Greg Schmid during Oral Comments at the Oct 5 2015 City Council Meeting Dear All: Below is my effort to put in writing what I said in the Oral Comments period of the October 5 2015 City Council Meeting. I have also included some references at the request of Greg Schmid. Thanks you for your time and listening to these thoughts about the dewatering issue. Sincerely, Dr. Leah Rogers (Ph.D. from Stanford in Hydrogeology) The 2004 EIP report suggests the range of influence on the water table aquifer is on the order of tens of feet from the dewatering well. The amount of water table drawdown necessary in construction of basements in Palo Alto is approximately 15 feet (i.e. drawing down the water table from 10 ft below ground surface to 25 ft below ground surface. If we consider standard calculations of radial flow applications of Darcy’s Law (Freeze and Cherry, 1979 (note Eq 8:12-8:15); Manning, 1997; Bennett et al., 1990), a lowering of the water table level approximately 15 feet an unconfined aquifer in alluvial deposits may create a cone of depression that spreads out towards a few hundred feet in any direction. This assumes some general hydraulic conductivities and other aquifer parameters that could be in alluvial deposits in this area. Note regional studies suggest hydraulic conductivity values may range between 260 and 6000 gpd/ft2 (McCloskey and Finnemore, 1996). There are many major factors that influence the drawdown of the water table: thickness of the water table aquifer, interfingering of layers that may inhibit flow (aquitards in which case coefficients would have to be assumed to account for leaky aquifers), and whether or not steady-state is reached. Precise predictive modeling would require to collection of data from time dependent well testing. However, we may say qualitatively where there were more sands and gravels the cone of depression would reach further than if there were tighter silts and clays. When several of these projects going on in the same neighborhood, which is the case in Palo Alto, cones of depression may interact cumulatively. As the dewatering effect from multiple projects are cumulative and interact with reduced irrigation, it is difficult to assign “responsibility” for damages to property or landscaping to specific dewatering projects. The drying out of soils is often not perfectly reversible. This is called hysteretic soil compaction. For example, wet clay worked into a dry piece of pottery cannot simply be put back into it’s original state by submerging it in water. Imagine over a 3-4 month dewatering project that particularly the interfingering clays in the subsurface will cause unequal rewetting. It is quite plausible that the scale of these dewatering projects are responsible for the additional cracks in walls and foundations which neighbors in the area have noted. For example, the 2008 City Manager’s Report includes a letter from Steve Broadbent raising such issues. Overall, it would seem that the City of Palo Alto would do well to require dewatering projects to provide specific characterization and predictions of groundwater impact during the course of the proposed project before approving any dewatering especially in times of drought and water- conservation. Even better would be adoption of construction practices and project designs that significantly reduce the need for dewatering, especially considering reduced irrigation in the area during droughts. References: Bennett, Gordon D., Thomas E. Reilly, and Mary C. Hill. 1990. Technical Training Notes in Ground-Water Hydrology; Radial Flow to a Well. US. Geological Survey Water Resources Investigations Report 89 4134. http://pubs.usgs.gov/wri/1989/4134/report.pdf. Freeze, R.A. and J. A Cherry. 1979. Groundwater. Prentice Hall Inc., Englewood Cliffs, NJ. 604 pp. Manning, J.C. 1997. Applied Principles of Hydrology. Prentice Hall, third edition, 276p. McCloskey, T.F. and E. J. Finnemore. 1996. Estimating Hydraulic Conductivities in an Alluvial Basin from Sediment Facies Models. Ground Water, Vol. 34, No. 6 November- December 1996. http://info.ngwa.org/gwol/pdf/962962189.PDF. On Wed, Jul 15, 2015 at 4:18 PM, Bobel, Phil <Phil.Bobel@cityofpaloalto.org> wrote: Ms. Relman: Our Assistant City Manager, Ed Shikada has asked me to respond to your 7/14 email about the pumping of groundwater to allow the construction of basements. A number of residents have raised issues very similar to yours, and we have created a website to address them: Recycled Water Web Page . Scroll down to the last line and click on “here” to see our “Frequently Asked Questions” about the pumped ground water. While I know it appears to be wasting water, the shallow ground water aquifer is flowing to our creeks and Bay. The pumping and discharge of this shallow ground water to the storm drains sends the ground water to the same place, our creeks and Bay, where it supports ecosystems and their wildlife. Nonetheless, the City is working with builders to try to get as much of water used as practical. The main limitations are the very high cost of trucking the water and the lack of a piping system from the pumping sites. Farmers are just too far away to make their using it practical at this time. A portion of the water is being used to water City trees, provide dust control at construction sites, and similar non-potable uses. With respect to the potential for drawing down the shallow groundwater and causing land subsidence, we do not have reason to believe this would occur, given the short duration pumping and the small number of wells involved here. Subsidence can occur when pumping happens over a number of years from many wells. I hope this helps address your concerns. Phil Bobel Assistant Director, Public Works From: Shikada, Ed Sent: Wednesday, July 15, 2015 8:07 AM To: Georgia Relman Cc: Council, City; Bobel, Phil Subject: Re: draining ground water Dear Ms. Relman, Thanks for contacting us with your concerns. I will ask Public Works staff to review the issue and reply directly to you. There has been quite a bit of activity on this issue recently that may interest you, specifically on the topics you raised. You may also wish to participate in future discussions. Sincerely, Ed Shikada Assistant City Manager On Jul 14, 2015, at 4:12 PM, Georgia Relman <georgiarelman@gmail.com> wrote: Hi All, I have a question. Just in our neighborhood alone (around professorville), 4 construction sites building private homes are draining ground water at full blast down storm drains; this has been going on for many MONTHS now. Why are private construction companies allowed to drain Palo Alto ground water? Wouldn't it be of benefit to use this water for Palo Alto parks etc. or sell it to farmers for Palo Alto profit (because it is needed)? When the ground water is drained under Palo Alto, will the ground sink as it has in other areas of California as they are being drained of ground water? Why is this not of concern to our city government? (I don't get it) Sincerely, Georgia On Apr 25, 2015, at 2:32 PM, Skip Shapiro <sailorskipca@yahoo.com> wrote: Dear Mayor Holman and City Council, This is a request for the Planning Department and the City Council to take immediate action to stop groundwater pumping which occurs during the construction of residential basements. As long time Palo Alto residents, we are appalled to see millions of gallons of groundwater going down storm drains in the midst of this historic California drought. At the same time, residents and businesses have been asked to curtail water use for landscape and other uses. Even worse, the pumping depletes groundwater that is essential to the health of trees, causes subsidence that can damage property, and consumes water Palo Alto relies upon for emergencies. This morning we passed a home under construction on Harker where groundwater is being pumped. We estimated the flow rate to be 75 gallons per minute (based on the fill time of a 5 gallon bucket), which equates to 108,000 gallons – or 14,400 cubic feet – per day. From past experience monitoring similar groundwater pumping for basement construction, the pumping will continue for at least 4 weeks. That amounts to more than 400,000 cubic feet of wasted water. Residential basement construction is a relatively recent phenomenon in Palo Alto, driven by people maximizing living space within lot coverage constraints. It has likely contributed to the steep increase in property values and encouraged buyers who raze existing houses to replace them with new ones that include basements…without considering the impact on neighbors, the community, and the environment. We think it’s time to halt approval of residential construction that includes basements where groundwater pumping is required. Basements should not be allowed on these sites. We request an immediate moratorium on design and construction approval for any home where groundwater pumping is required. We also ask the City Council to direct the Planning Department to review and change regulations that permit residential basement construction. Respectfully, Barbara and Skip Shapiro Mr. James Keene General Manager City of Palo Alto 250 Hamilton Avenue Palo Alto, CA 94301 Dear Mr. Keene, .Li-.l ___ : . ;;.,\GC:.:;' '·,,. c.c> Ph 11 Borel M·1k~ N°'tz\ger Valoran P. Hanko --r ' . c, rvvk-·on 864 Fielding Court uOJ)\ ce l)'KJ ).j.)\J 1 Palo Alto, CA 94303-3645 May 19, 2015 I recently noticed a pumping operation in my neighborhood at 804 Fielding Drive that is reminiscent of an operation that occurred next door at 858 Fielding Ct in 2001. This pumping operation takes ground water from our underground aquifer and sends this to the storm drain as undesirable waste in preparation of a new residential construction. When this operation was performed in 2001, the surrounding neighborhood sank in elevation resulting in a new designation for the neighborhood to be within the 100 year flood zone, where as prior it was not. Additionally, this resulted in cracks in the pavement of our street where the sinking of the ground is still evident. Additionally, it was observed by some neighbors that their house slab foundations (characteristic of the 1940's period-build homes) had shifted and cracked. The house behind us had their garage drop in elevation in one of their corners. I estimate that non-potable water is being pumped at a rate of about 0.5 gal/sec, which equates to 30 gallons per min, 1800 gal per hour, 43,200 gal per day, 302,400 gal per week. Since this operation went for about 6 months at the next door neighbor's site, assuming a constant rate, this amount of water would be equivalent to (at 1.2 million gallons of water per month) 7.2 million gallons of underground water. Since the volume of water occupying 1 gallon is 0.134 cubic feet per gal (7.48 gal per cubic feet), 7.2 million gallons would take 970,000 cubic feet of underground aquifer space, and it is a fact that when the ground collapses into this aquifer space, it can never be retrieved again. The loss of elevation in the neighborhood places financial burden upon innocent people, causing many with mortgage payments to be required to have FEMA Flood Insurance, and even those who own their house, puts them at new risk of flooding. I believe this pumping action, apparently approved by the City Building Department, has not been seriously evaluated for its consequences by qualified engineers without bias. Furthermore, this precious water is being wasted into the storm drain during a severe drought, another irresponsible action. I am not sure about the legal consequences of halting this operation in my neighborhood, but as General Manager you must have some power to take emergency actions when severe consequences can be seen or is discovered, and thus this letter is to inform you of this matter with the hope that you can stop this pumping process and new building permit approvals, and to suspend all current operations until appropriate state-of-the-art engineers have evaluated this type of operation. Meanwhile, I intend to contact the Santa Clara County Water Resources Board about this concern, and hope you may work together with them to seek a resolution that does not adversely impact the community, one that includes the preservation of our underground aquifer. //~.:c•r•I:? / /fj ~~/ / ~··· 1. c{c:~ l~ i Valoran P. Hanko · PUBLIC WORKS CITY OF P.O. Box 10250 PALO ALTO Palo Alto. CA 94303 · 650.329.2151 July 6, 2015 Valoran P. Hanko 864 Felding Court Palo Alto, CA 94303-3645 Dear Mr. Hanko: Thank you for your May 19 letter concerning the impacts of basement construction groundwater pumping. I've been asked to respond on behalf of Palo Alto City Manager Jim Keene. Your letter expresses concern about a current pumping site and one that took place in 2001, both in your neighborhood. With respect to the earlier pumping, you expressed the belief that the pumping caused the ground to subside. We do not have reason to think that is the case. The additions to the flood zone that were made around that time were the result of new, better data, as opposed to any anticipated change in actual elevations. The earlier flood zone map had been based on a more limited set of elevation measurements. When more elevation data was collected in the 2000 time frame, it resulted in relatively small shifts in the flood zone boundary, but ones which were very important to the individual houses affected. You calculated the rough amount of ground water pumped out and postulated that that the ground level would sink to a level associated with that loss of water. We do not believe that would be the case. Rather, the groundwater is moving and new ground water would fill behind the groundwater being pumped out. Only a large number of wells operating over a long time frame would cause a relatively permanent change in the ground water elevation and an associated ground level subsidence. As you know, subsidence has occurred in a number of areas where large numbers of wells have pumped over time. You also expressed the view that the pumped water going to the storm drain was being wasted. And yet this ground water was moving toward our creeks and Bay and ultimately would have replenished both. Pumping some of it to the storm drain results in it traveling a different path, but ultimately reaching the same locations: our creeks and Bay. Our creeks and Bay need this water to preserve ecosystems and maintain needed salinity levels. Nonetheless, because of the strong feelings of a number of our residents, we are working to have builders minimize the amount pumped and use as much of the water as practical. Builders are now required to build "Fill Stations" at their sites so that others can fill trucks and tanks and use the water. The current pumping site at 804 Fielding near you has a Fill Station. The City, other builders and residents like you can use the water. Please see our website for the other locations and contact information: www.cityofpaloalto.org/water. C ityOf Pa lo A lto.org Printed with soy-based inks on 100% recycled paper processed without chlorine. I hope this addresses your concerns. Please do not hesitate to contact Mike Nafziger (650-617- 3103) for more information about 804 Fielding, or myself (650-279-0464) for broader issues we are facing in this most difficult time of drought. Sincerely, cfi?:f il,&t Phil Bobel Assistant Director, Public Works From: "Andrei Sarna-Wojcicki" <andreisarna@gmail.com<mailto:andreisarna@gmail.com>> To: "Council, City" <city.council@cityofpaloalto.org<mailto:city.council@cityofpaloalto.org>>, "letters@dailynewsgroup.com<mailto:letters@dailynewsgroup.com>" <letters@dailynewsgroup.com<mailto:letters@dailynewsgroup.com>> Cc: "Deborah Harden" <deborahrharden@gmail.com<mailto:deborahrharden@gmail.com>> Subject: Fwd: Groundwater is wasted by pumping at construction sites and dumping into storm sewers To: Mayor of the City of Palo Alto and the City Council: I have sent this message to the Public Comment web site two of days ago, but have not received an answer, and the matter is urgent. I have also sent it previously to the Palo Alto daily news site (letters@dailynewsgroup.com<mailto:letters@dailynewsgroup.com>). So, I'm forwarding this email to you and the City Council. By now, three days have elapsed since I sent the first message, and an estimated minimum of 260,000 gallons of groundwater have been pumped from the construction site at 2133 Webster and dumped into the storm sewer at the corner of N. California and Byron Streets. The water continues to be pumped as I write this (I just went by there a few minutes ago). Putting up a sign saying that the public can help themselves to the water does not solve the problem of this wasteful practice, continued with city approval during a time of extreme drought. As I mentioned in the message, this is just one of several construction sites in the city where pumping of groundwater is going on. This is a wasteful practice during ordinary times, and more so during the current severe drought. The water needs to be used for watering the trees and green areas of the city, and to maintain the level of the groundwater to keep city and residential trees from dying. The excavation at the Webster site must be at the site of a buried old gravel channel, to account for the high discharge. The water that is being wasted by direct dumping into the storm sewers not only deprives the trees in the vicinity of the pumping and downstream in the water table, but it also depriving a whole ecosystem at lower elevations downstream in the water table to the southeast--the marshes and the city Baylands. This is a high price to pay for allowing cellars to be built in an area that is at low elevations (the Webster St. site is at ~17 feet above sea level). Another several such construction sites have been recently finished near our house on Garland Drive. These are at an even lower elevation, 10 to 15 feet. Building cellars in these areas is a mistake, and has been historically avoided in this area since early European settlement for very good reasons. The water table here is high and irregular in elevation. Some of the new cellars actually intrude below the water table, as appears to be the case at the Webster Street site. I urge you to take this matter under advisement. Additional comments and arguments are provided in the forwarded email. Sincerely, Andrei M. Sarna-Wojcici, Resident of Palo Alto (708 Garland Drive) Retired geologist, U.S. Geological Survey ---------- Forwarded message ---------- From: Andrei Sarna-Wojcicki <andreisarna@gmail.com<mailto:andreisarna@gmail.com>> Date: Thu, May 7, 2015 at 10:41 AM Subject: Groundwater is wasted by pumping at construction sites and dumping into storm sewers To: letters@dailynewsgroup.com<mailto:letters@dailynewsgroup.com> Cc: Deborah Harden <deborahrharden@gmail.com<mailto:deborahrharden@gmail.com>> Dear Sir or Madam: Groundwater is being wasted on the Peninsula by being pumped out at construction sites and dumped into city storm sewers. This practice is actively going on at at least three construction sites in Palo Alto, and probably at many more throughout the Peninsula. I passed by one such site at 2133 Webster St. in Palo Alto at ~10:45 AM yesterday, returned by there at ~12:45 noon, and passed by there again at ~5:45 PM. The water was going full blast the whole time from the construction site, around the block to N. California and Byron streets, and down into a storm sewer. I estimated that about a gallon of water was dumped every second from a six-inch diameter pipe, which would amount to about 25,200 for the 7 hours time of my observation. This is probably a minimum for this particular site for this day. At the calculated rate, this would amount to 86,400 gallons of water for a 24 hour period. My wife observed the same practice going on a few months ago from another site, for at least a week. This is a massive waste of groundwater during a period of severe drought. It depletes water from an already depleted water table, forming a cone-shaped depression around the pumping site, and decreasing the available groundwater in that area from flowing farther down in the water table toward lower elevations, thus lowering the water table and depriving trees from water. It's killing off our trees. This water needs to be used for watering the trees and other plants in the municipal parks and other public grounds, and any left over water should be made available for residential use. Reservoirs need to be constructed to store this water, and a distribution system be put into place, perhaps even by temporary above-ground plastic pipe systems during this drought, to make use of this water. At the dump site that I observed, a sign put up by the city of Palo Alto which informs the public that the water is not potable, that it is being discharged (no duh), and states that "...To use this water for irrigation pr other non-potable purposes, follow this discharge hose back to the water filling station." I presume this refers to the pumping site at 2133 Webster. And what does the Palo Alto citizen do then? Bring a Dixie Cup and help himself/herself to the water? Or back-up a tanker truck to the site and fill-up? This is obviously a large job that the Peninsula municipalities need to address. I sent a message regarding this situation to the city of Palo Alto today. I attach photos from the pumping and dump sites I observed yesterday. Sincerely, Andrei Sarna-Wojcicki, Resident of Palo Alto Comments to Council regarding Dewatering Residential Basement Construction Keith Bennett November 9, 2015 The City of Palo Alto has a history of developing policies to protect natural resources, to protect our environment and to encourage sustainability. Water is now recognized as a valuable and limited resource, and groundwater is an important component of the City of Palo Alto’s Emergency Water Supply. Climate change is predicted to increase the risks of droughts, megadroughts and floods, in addition to sea (and Bay) level rise. https://www.washingtonpost.com/national/health-science/todays-drought-in-the-west-is- nothing-compared-to-what-may-be-coming/2015/02/12/0041646a-b2d9-11e4-854b- a38d13486ba1_story.html 1) The Groundwater Supply Feasibility Study performed by Carollo Engineers for the City of Palo Alto in 2003 provides quantitative analysis and measurements of the effects of groundwater pumping in Palo Alto. Data from the pumping in 1988 of groundwater for local domestic water use was deemed to be the most reliable and is the primary basis for the conclusions of the report, which is available at: http://www.cityofpaloalto.org/cityagenda/publish/uac-meetings/1930.pdf Some main points are summarized below. In this section, quotes indicate verbatim text from the study, italics indicate my personal analysis using other information including map data. Text not in quotes are my personal summaries of information from the study. a. “Utilizing the data from the 1988 pumping, the extraction of 1,000 acre-feet from the Palo Alto area will result in basin-wide water level declines on the order of 15 feet.” --- pg. 20 The shallow surface aquifer level, typically a few feet below the ground surface, declines in response to pumping the deeper aquifer as shown by the well level graphs. --- pgs. 5 - 10 b. The water levels in the Fernando, Middlefield and Matadero wells were lowered by 18, 25 and 37 feet respectively, even though water was not pumped from any of those wells. --- Table 1, pg. 13 An interactive map showing the locations of the wells and 2015 basement dewatering sites is attached (Map A) with this document and available online at: https://www.google.com/maps/d/edit?app=mp&hl=en_US&mid=zW7thpaYaYZI.kYz YfTCRxd_Q The Middlefield well is located about 5 blocks (0.4 miles, straight line) from the Rinconada Well (from which 600 acre-feet of water was produced in 1988) and about 0.7 miles from the Hale Well (produced 400 acre-feet in 1988). Peers Park (produced 400 acre-feet) is the closest well to the Fernando and Matadero wells and is 1.0 – 1.2 miles away. c. “Depending on the method, estimates of average annual recharge to the basin are between 38 and 3,800 acre-feet. “ -- Pg. 20 d. “The year-to-year 500 AFA* extraction is intended to not lower groundwater levels substantially, which would preserve the natural groundwater flow direction and prevent saltwater intrusion. The periodic 1,500 AFA well use described above would result in transient occurrence of water levels below sea-level. While water level below sea-level will reverse the seaward gradient, the slow travel time of groundwater provides a buffer from seawater intrusion for transient use. “ – Pg. 21 * AFA = Acre-feet annually. 2) The total amount of groundwater pumped for residential basement construction in 2015 is estimated to be about 400 acre-feet, based upon an average of 1.2 million cubic feet (28 acre-feet) per basement for the 14 basements dewatered in 2015. 3) The Groundwater Supply Feasibility Study estimates that the water table is lowered approximately proportionately to the amount of water pumped. Using the value in the report of 15 feet lowering for 1,000 acre-feet pumped, the estimated lowering of the water table due to dewatering for residential basement construction in 2015 would therefore be about 6 feet, and would extend over large areas of Palo Alto. 4) An advisory Measure N, “Emergency Underground Water Storage and Equipment Replacement,” (November 2007) passed with 91.84% of the vote. The Emergency Water Supply Project (EWSP), WS-08002, was approved by Council in 2007 and bonds totaling $35,015,000 were sold on October 6, 2009. Of this amount, approximately $5.36 million was used for projects related to using groundwater: groundwater feasibility studies (CMR 124:06 and related), rehabilitation of existing wells (CMR 232:10) and construction of new wells (CMR 371:09). The bonds are being repaid over 25 years through water usage fees. 5) As part of the EWSP, five existing wells have been rehabilitated for use as emergency domestic water supplies. These wells are the Hale Well (999 Palo Alto Avenue), Rinconada Well (1440 Hopkins Avenue), Peer’s Park Well (1899 Park Boulevard), Matadero Well (635 Matadero Avenue) and Fernando Well (410 Fernando Avenue). http://www.cityofpaloalto.org/gov/depts/utl/eng/water/wells/faq/rehabilitation.asp Additionally, two new wells have been constructed, one at Eleanor Pardee Park and another at (Rinconada) Library / Community Gardens. http://www.cityofpaloalto.org/gov/depts/utl/eng/water/wells/eleanor.asp Two 2015 dewatering sites are within the triangle formed by the two new wells (Eleanor Pardee Park and Library / Community Gardens) and the Rinconada well. See attached Maps B and C or online map. https://www.google.com/maps/d/edit?app=mp&hl=en_US&mid=zW7thpaYaYZI.kXmqQlQL K9iM 6) Methods exist for residential basement construction that do not require dewatering. Residential basements are built in areas of high groundwater in The Netherlands without dewatering, per personal verbal communication with the mayor of Palo Alto’s sister city, Enschede at the Council Meeting on November 2. Map A: Palo Alto Emergency Water Supply Well Map Locations of Palo Alto's Emergency Water Supply Wells, including the Middlefield Well. Basement dewatering sites Emergency Water Supply Wells Rinconada Well Hale Creek Well Peers Park Well Matadero Well Fernando Well Eleanor Pardee Park Well Library Community Gardens Well Historical Wells Middlefield Well Map B: Dewatering_Map 2015 Residential basement construction dewatering sites and emergency water supply well locations 2015 Basement dewatering sites 2133 Webster St 2130 Byron St 713 Southampton Dr 897 Southampton Dr 736 Garland Dr 684 Wellsbury Way 804 Moreno Ave 1812 Bret Harte St 1210 Newell Rd 51 Jordan Pl 2230 Louis Rd 1405 Harker Ave 3832 Grove Ave 1950 Newell Rd Emergency Water Supply Wells Rinconada Well Hale Creek Well Peers Park Well Matadero Well Fernando Well Eleanor Pardee Park Well Library Community Gardens Well Map C: Dewatering_Map 2015 (Community center zoom) Residential basement construction dewatering sites and emergency water supply well locations 2015 Basement dewatering sites 2133 Webster St 2130 Byron St 713 Southampton Dr 897 Southampton Dr 736 Garland Dr 684 Wellsbury Way 804 Moreno Ave 1812 Bret Harte St 1210 Newell Rd 51 Jordan Pl 2230 Louis Rd 1405 Harker Ave 3832 Grove Ave 1950 Newell Rd Emergency Water Supply Wells Rinconada Well Hale Creek Well Peers Park Well Matadero Well Fernando Well Eleanor Pardee Park Well Library Community Gardens Well Attachment F November 2, 2015 To: Palo Alto City Council From: Keith Bennett Save Palo Alto's Groundwater Re: Petitions Attached are petitions signed by 190 individuals specifically requesting a moratorium on new dewatering permits for residential basement construction. The signatures were mostly collected during a short 2 - 3 period in late summer by a handful of volunteers. Name Deborah Baldwin Henry Heller M Smith City Menlo Park Palo Alto Palo Alto Postal Code Signed On 94025 8/6/2015 94303 8/7 /2015 94301 8/7 /2015 City of Palo Alto GROUNDWATER SUPPLY FEASIBILITY STUDY FINAL April 2003 2700 YGNACIO VALLEY ROAD, SUITE 300 • WALNUT CREEK, CALIFORNIA 94598 • (925) 932-1710 • FAX (925) 930-0208 H:\Final\PaloAlto_WCO\6589A00\Rpt\GWSupplyFeasibilityStdy-Final.doc CITY OF PALO ALTO GROUNDWATER SUPPLY FEASIBILITY STUDY TABLE OF CONTENTS Page 1.0 INTRODUCTION .......................................................................................................1 1.1 Background .....................................................................................................1 1.2 Well System Rehabilitation and Construction Plans........................................2 2.0 POTENTIAL GROUNDWATER USE IN PALO ALTO...............................................2 3.0 HISTORICAL GROUNDWATER LEVELS AND USE................................................4 4.0 ESTIMATION OF BASIN CAPACITY......................................................................11 4.1 1988 Drought Pumping Analysis ...................................................................12 4.2 Summary of Basin Capacity Estimation ........................................................13 5.0 POSSIBLE PALO ALTO GROUNDWATER SUPPLY SYSTEM.............................14 6.0 POTENTIAL IMPACTS OF GROUNDWATER EXTRACTIONS .............................15 6.1 Subsidence....................................................................................................16 6.2 Saltwater Intrusion.........................................................................................18 6.3 Contaminant Plume Migration .......................................................................19 7.0 SUMMARY...............................................................................................................20 LIST OF TABLES Table 1 Water Level Response ..................................................................................13 LIST OF FIGURES Figure 1 Existing and Proposed City Wells...................................................................3 Figure 2 Hale Well.........................................................................................................5 Figure 3 Matadero Well.................................................................................................6 Figure 4 Fernando Well.................................................................................................7 Figure 5 Peers Park Well ..............................................................................................8 Figure 6 Rinconada Well...............................................................................................9 Figure 7 Meadows Well...............................................................................................10 Figure 8 Historical Data on Water Use, Supply, and Subsidence in San Jose, CA....17 FINAL - April 28, 2003 i H:\Final\PaloAlto_WCO\6589A00\Rpt\GWSupplyFeasibilityStdy-Final.doc City of Palo Alto GROUNDWATER SUPPLY FEASIBILITY STUDY 1.0 INTRODUCTION The Palo Alto Utilities Department (Utilities) is presently examining the issues relating to the use of groundwater. Examining all water supply options, including local sources such as groundwater supply, is a part of good planning practices for the water utility. Utilities has engaged Carollo Engineers, P.C. (Carollo) to prepare a “Groundwater Supply Feasibility Study” (Study) to: “Evaluate whether operating one or two of the City’s water wells as active supplies would cause a significant decrease in groundwater levels or deterioration in groundwater quality.” This Study estimates the groundwater basin capacity in Palo Alto vicinity, identifies a possible well supply system given the basin capacity constraints, and examines whether there is a safe way to use groundwater as a supply source either in drought periods or on an ongoing basis. We have examined the capability of Palo Alto’s groundwater supply and some of the more significant potential impacts of pumping. The three potential impacts that this Study specifically addresses are: • The risk of land surface subsidence; • The risk of groundwater contamination through saltwater intrusion; and • The risk of groundwater contamination through the travel of pollution plumes to the drinking water aquifer. Palo Alto Utilities staff and Carollo have worked closely with staff of the Santa Clara Valley Water District (SCVWD) to ensure that SCVWD staff are fully informed of the analysis methods and findings. At the present time, the City of Palo Alto is NOT planning to use any of the wells for long-term supply. Any change from the planned emergency-only use of the wells would happen only after further detailed analysis, environmental review, extensive discussion with the public, and approvals by both the Utilities Advisory Commission and the City Council. Staff is merely examining the issues related to the groundwater basin and the possible use of the wells in severe droughts or as a supplemental supply in the future. 1.1 Background The City of Palo Alto obtained its well system in 1896. The entire water supply for the City was derived from groundwater until 1938 when it began receiving supplemental supplies from the City and County of San Francisco. In 1962, the wells ceased operating on a FINAL - April 28, 2003 1 H:\Final\PaloAlto_WCO\6589A00\Rpt\GWSupplyFeasibilityStdy-Final.doc continuous basis and San Francisco water became the City’s primary source of supply with the wells maintained as an emergency water supply. The wells were last used in 1988 and 1991 to provide supplemental supplies during a serious drought. At this time, the City maintains five wells as emergency (standby) water sources, but they are in need of rehabilitation. 1.2 Well System Rehabilitation and Construction Plans The City is presently implementing plans to rehabilitate the five existing wells and build three new wells. These improvements are part of a larger Water System Capital Improvement Plan, which was developed as a result of extensive study completed in 1999 (1999 Study). The primary purpose of the well rehabilitation and construction plans is to provide necessary emergency water supplies in the event of a complete cutoff from the SFPUC water supplies. The overall water CIP has been reviewed and approved by both the Utilities Advisory Commission and the Palo Alto City Council. Funds for the improvements are included in the five-year Water Capital Improvement Program Budget. 2.0 POTENTIAL GROUNDWATER USE IN PALO ALTO The imported water purchased from the SFPUC has been a reliable supply for 40 years. There is growing concern, however, that this supply may be jeopardized either partially or completely by a number of factors. For example, the SFPUC supply was rendered unavailable once in 1995 and again in 1998 due to water quality concerns.1 In addition, recent studies conducted by the SFPUC have identified a number of system vulnerabilities that could cut off the water supply for up to 60 days in the event of a serious emergency.2 In regards to long-term reliability, the SFPUC supply is insufficient to meet the current and forecasted needs of the users of the regional system it operates. Droughts in 1976-77 and 1987-1992 that resulted in the rationing of supplies clearly illustrates this fact. The SFPUC’s Water Supply Master Plan (WSMP) recognized that on a long-term basis, its supplies are inadequate. The WSMP identified the system’s yield as 239 mgd while current demand is greater than 260 mgd and the demand estimate for 2030 is 303 mgd, or a shortfall in supplies of 64 mgd. Thus, it is prudent for the City to evaluate its options for improving the reliability of its water supply. The location of the City’s wells is shown in Figure 1. These wells may have potential uses beyond supplying water during SFPUC outages. If the City Council decided, the wells could also help supplement water supplies during drought periods and perhaps even as active 1 “Water Wells, Regional Storage, and Distribution System Study,” page 4-1, prepared for the City of Palo Alto by Carollo Engineers, P.C. dated December 1999. 2 SFPUC fact sheet dated August 5, 2002. FINAL - April 28, 2003 2 H:\Final\PaloAlto_WCO\6589A00\Rpt\GWSupplyFeasibilityStdy-Final.doc LEGEND Pa303f1-6589.cdr Figure 1 EXISTING AND PROPOSED CITY WELLS GROUNDWATER SUPPLY FEASIBILITY STUDY CITY OF PALO ALTO SFPUC Turnout Existing Well Sites Proposed Well Sites No Scale Matadero Well P ers Pa k e r Wlel Rinconada Well Library/ Community Gardens Well El Camino Park Well Palo Alto Medical Facility Well (Roth Site) Middlefield Well Eleanor Park Well Ha e l Well Fernando Well tt tt tt California Turnout Lytton Turnout sources to be regularly used in conjunction with the SFPUC supply. These uses, however, raise significant concerns related to lowering of the groundwater levels. Significantly, depressed groundwater levels can potentially lead to environmental consequences such as subsidence, saltwater intrusion, and contaminant migration. Though there may be other as yet unidentified impacts, these impacts are discussed in this Study as they are considered to be the most significant potential impacts. Currently, the wells are designated standby sources meaning that they can only be used 15 days a year and no more than 5 days consecutively.3 The “standby” designation is made with the California Department of Health Services (DHS) in part because the well water quality exceeds some secondary (aesthetic) drinking water standards. According to the 1999 study, the well water quality exceeds secondary standards for TDS, iron, and manganese. For the purposes of this Study, it is assumed that the water would be used for potable uses. As such, changing the well status with the DHS from “standby” to “active” would require the well water to be treated such that it met all drinking water regulations. Alternatively, the regulations allow the City to distribute water that meets primary drinking water quality standards but exceeds some secondary drinking water quality standards. Proceeding in this manner would require the City to first complete a study acceptable to the California Department of Health Services (DHS) showing consumer acceptance of water not meeting secondary drinking water standards (see California Code of Regulations Title 22, Division 4, Chapter 15, Article 16, Section 64449 for specific details). Customer acceptability, however, may require the City to install sufficient treatment at the wells to be used for drought or active supply such that the water quality is increased significantly or made comparable to the SFPUC water. This issue was covered in the City’s “Long-Term Water Supply Study” dated May 2000 (May 2000 Study). 3.0 HISTORICAL GROUNDWATER LEVELS AND USE The best way to evaluate the effect that pumping has on groundwater levels is to review historical data that show the basin’s response to pumping. Groundwater pumping and water level data from 1950 through 2000 are presented in Figures 2 through 7. All of the water level graphs show a characteristic rise following the switch to SFPUC water in the early 1960s. In general, the graphs show smooth trends in response to recharge, pumping, and drought conditions. There are occasional spikes in the graphs that appear to be outlying, erroneous 3 According to the California Code of Regulations, Title 22, Section 64449, (e) (I), standby wells may be used as active sources without additional water treatment if the City were to conduct a study establishing the customers’ willingness to accept water that doesn’t meet secondary water quality standards. FINAL - April 28, 2003 4 H:\Final\PaloAlto_WCO\6589A00\Rpt\GWSupplyFeasibilityStdy-Final.doc Pa303f2-6589.cdr Figure 2 HALE WELL GROUNDWATER SUPPLY FEASIBILITY STUDY CITY OF PALO ALTO 0 200 400 600 800 1000 1200 1400 1600 1800 19 4 8 19 5 2 19 5 6 19 6 0 19 6 4 19 6 8 19 7 6 19 8 0 19 8 4 19 8 8 19 9 2 19 9 6 20 0 0 An n u a l P r o d u c t i o n ( a c r e - f t / y r ) Wa t e r S u r f a c e E l e v a t i o n ( f e e t ) -240 -220 -200 -180 -160 -140 -120 -100 -80 -60 -40 -20 0 20 40 60 Jan -48 Jan -52 Jan -56 Jan -60 Jan -64 Jan -68 Jan -72 Jan -76 Jan -80 Jan -84 Jan -88 Jan -92 Jan -96 Jan -00 Drought Period Ground Elevation 19 7 2 Pa303f3-6589.cdr 0 200 400 600 800 1000 1200 1400 1600 1800 19 4 8 19 5 2 19 5 6 19 6 0 19 6 4 19 6 8 19 7 2 19 7 6 19 8 0 19 8 4 19 8 8 19 9 2 19 9 6 20 0 0 An n u a l P r o d u c t i o n ( a c r e - f t / y r ) Figure 3 MATADERO WELL CITY OF PALO ALTO GROUNDWATER SUPPLY FEASIBILITY STUDY Wa t e r S u r f a c e E l e v a t i o n ( f e e t ) -240 -220 -200 -180 -160 -140 -120 -100 -80 -60 -40 -20 0 20 40 60 Ja n - 4 8 Ja n - 5 2 Ja n - 5 6 Ja n - 6 0 Ja n - 6 4 Ja n - 6 8 Ja n - 7 2 Ja n - 7 6 Ja n - 8 0 Ja n - 8 4 Ja n - 8 8 Ja n - 9 2 Ja n - 9 6 Ja n - 0 0 Ground Elevation Drought Period Pa303f4-6589.cdr Wa t e r S u r f a c e E l e v a t i o n ( f e e t ) 0 200 400 600 800 1000 1200 1400 1600 1800 19 4 8 19 5 2 19 5 6 19 6 0 19 6 4 19 6 8 19 7 2 19 7 6 19 8 0 19 8 4 19 8 8 19 9 2 19 9 6 20 0 0 An n u a l P r o d u c t i o n ( a c r e - f t / y r ) Figure 4 FERNANDO WELL CITY OF PALO ALTO GROUNDWATER SUPPLY FEASIBILITY STUDY -240 -220 -200 -180 -160 -140 -120 -100 -80 -60 -40 -20 0 20 40 60 Ja n - 4 8 Ja n - 5 2 Ja n - 5 6 Ja n - 6 0 Ja n - 6 4 Ja n - 6 8 Ja n - 7 2 Ja n - 7 6 Ja n - 8 0 Ja n - 8 4 Ja n - 8 8 Ja n - 9 2 Ja n - 9 6 Ja n - 0 0 Ground Elevation Drought Period Pa303f5-6589.cdr Wa t e r S u r f a c e E l e v a t i o n ( f e e t ) 0 200 400 600 800 1000 1200 1400 1600 1800 19 4 8 19 5 2 19 5 6 19 6 0 19 6 4 19 6 8 19 7 2 19 7 6 19 8 0 19 8 4 19 8 8 19 9 2 19 9 6 20 0 0 An n u a l P r o d u c t i o n ( a c r e - f t / y r ) Figure 5 PEERS PARK WELL CITY OF PALO ALTO GROUNDWATER SUPPLY FEASIBILITY STUDY -240 -220 -200 -180 -160 -140 -120 -100 -80 -60 -40 -20 0 20 40 60 Ja n - 4 8 Ja n - 5 2 Ja n - 5 6 Ja n - 6 0 Ja n - 6 4 Ja n - 6 8 Ja n - 7 2 Ja n - 7 6 Ja n - 8 0 Ja n - 8 4 Ja n - 8 8 Ja n - 9 2 Ja n - 9 6 Ja n - 0 0 Drought Period Ground Elevation Pa303f6-6589.cdr Wa t e r S u r f a c e E l e v a t i o n ( f e e t ) 0 200 400 600 800 1000 1200 1400 1600 1800 19 4 8 19 5 2 19 5 6 19 6 0 19 6 4 19 6 8 19 7 2 19 7 6 19 8 0 19 8 4 19 8 8 19 9 2 19 9 6 20 0 0 An n u a l P r o d u c t i o n ( a c r e - f t / y r ) Figure 6 RINCONADA WELL CITY OF PALO ALTO GROUNDWATER SUPPLY FEASIBILITY STUDY -240 -220 -200 -180 -160 -140 -120 -100 -80 -60 -40 -20 0 20 40 60 Ja n - 4 8 Ja n - 5 2 Ja n - 5 6 Ja n - 6 0 Ja n - 6 4 Ja n - 6 8 Ja n - 7 2 Ja n - 7 6 Ja n - 8 0 Ja n - 8 4 Ja n - 8 8 Ja n - 9 2 Ja n - 9 6 Ja n - 0 0 Drought Period Ground Elevation Pa303f7-6589.cdr 0 200 400 600 800 1000 1200 1400 1600 1800 19 4 8 19 5 2 19 5 6 19 6 0 19 6 4 19 6 8 19 7 2 19 7 6 19 8 0 19 8 4 19 8 8 19 9 2 19 9 6 20 0 0 An n u a l P r o d u c t i o n ( a c r e - f t / y r ) Figure 7 MEADOW WELL CITY OF PALO ALTO GROUNDWATER SUPPLY FEASIBILITY STUDY -240 -220 -200 -180 -160 -140 -120 -100 -80 -60 -40 -20 0 20 40 60 Ja n - 4 8 Ja n - 5 2 Ja n - 5 6 Ja n - 6 0 Ja n - 6 4 Ja n - 6 8 Ja n - 7 2 Ja n - 7 6 Ja n - 8 0 Ja n - 8 4 Ja n - 8 8 Ja n - 9 2 Ja n - 9 6 Ja n - 0 0 Wa t e r S u r f a c e E l e v a t i o n ( f e e t ) Drought Period Ground Elevation data. We believe that the occasional spikes in the data are more likely due to equipment error than due to the actual water level. The information presented in the graphs is used in the following section to estimate the groundwater basin capacity in the Palo Alto area. 4.0 ESTIMATION OF BASIN CAPACITY Groundwater resources of the Palo Alto area occur within a much larger aquifer system - the Santa Clara Valley Groundwater Basin. This basin extends as far south as Coyote Narrows and extends north of Palo Alto far into San Mateo County. The system is bounded by uplifted bedrock to the west. To the east, the shallow portion of the aquifer system is bounded by San Francisco Bay. At depth, the aquifer systems of the west side of the valley interfinger under the bay with those of the east. In a large groundwater basin, estimation of the capacity of a smaller area within a basin is difficult because the smaller area is, by definition, unbounded. Groundwater moves freely between basin areas in response to hydraulic head. Therefore, pumping or recharge in one area of the basin has effects on the basin as a whole. Indeed, the impacts of seasonal variations in recharge and in extractions by one or more of Palo Alto’s neighbors are evident in the seasonal rise and fall of the water levels at the Hale Well. Estimating the capacity of the Santa Clara Valley Groundwater Basin in the Palo Alto area requires the definition of an arbitrary area for purposes of evaluating changes in groundwater storage that have occurred. For the purpose of estimating the storage capacity of the groundwater basin in the Palo Alto area, an arbitrary area was defined. This area is bounded on the west by the Hanover Fault zone that is approximately 2,000 feet west of El Camino Real with a similar trend. The Bay was adopted as the eastern boundary. The Hanover Fault zone separates the alluvium of the basin from the bedrock to the west and is a hydrogeologic boundary. For the upper portion of the aquifer system that is in hydraulic communication with the Bay, the Bay is a hydrogeologic boundary. For the deeper portions of the aquifer system, the Bay is not a hydrogeologic boundary but for purposes of definition in this Study, it was adopted as a boundary. The adopted north and south bounds are San Francisquito Creek and San Antonio Road, respectively. The area described by these boundaries is approximately 9,500 acres. Given this defined area, there are several approaches to understanding the capacity or yield. Three methods were evaluated in a previous report to the City entitled “Estimation of Groundwater Basin Capacity” dated December 2002 (December 2002 Report). Those three methods are: 1) Use of the SCVWD calibrated groundwater model; 2) Analysis of basin recovery to cessation of pumpage; and 3) Analysis of basin response to 1988 drought pumping. Once the December 2002 report was completed, the City and Carollo met with representatives of the SCVWD to discuss their questions and concerns regarding the FINAL - April 28, 2003 11 H:\Final\PaloAlto_WCO\6589A00\Rpt\GWSupplyFeasibilityStdy-Final.doc report. One of the outcomes of that meeting was that the first two methods of calculating the groundwater basin capacity were controversial for the following reasons: • The SCVWD groundwater model does not accurately reflect the hydrogeologic conditions at Palo Alto. One of the most important deviations is that the model does not account for any recharge from San Francisquito Creek. In fact, the model has a boundary condition that sets the contribution at zero. As such, using the model to calculate the Palo Alto groundwater basin capacity would likely result in a volume that is erroneously low unless the contribution from San Francisquito Creek is accounted for. Since this data is not available and obtaining it would not only require an extensive hydrogeologic study but would also raise concerns regarding the amount of water that must be left in the creek versus that which can be considered useful for groundwater recharge and later extraction, this method will not be further developed. • Using the groundwater level recovery history to calculate the basin storage capacity yielded values that ranged over two orders of magnitude. SCVWD representatives recommended that the City should perform multiple aquifer tests to improve the accuracy of this data. However, the existing condition of the City’s wells is not readily conducive to performing this type of test. In addition, an aquifer test could readily be performed once the City has completed upgrading its wells. For the present time, this method of estimating the basin capacity will not be pursued. The third method presented in the December 2002 Report for estimating the groundwater basin capacity (i.e. analyzing the water level data gathered during and after pumping in 1988) will be used for the remainder of this Study. 4.1 1988 Drought Pumping Analysis The pumping performed by the City of Palo Alto during the drought provides data to directly estimate the response of the basin to extractions. When the 1987-1992 drought occurred, the City’s wells had been essentially idle since 1962. During this period, water levels in the basin had risen, on average, more than 150 feet. Approximately 90 percent of that recovery took place in the first 10 years following cessation of pumping. The City operated the wells for an approximately 5-month period in 1988 and extracted approximately 1,505 acre-feet. The water level response is shown on Figures 1 through 6. The extraction volume and the observed water level response are summarized in Table 1. Averaging the observed water level declines results in an average decline of approximately 24 feet. This water level decline reflects Palo Alto’s pumpage while also reflecting the simultaneous pumpage from neighboring utilities. Utilizing the observed 24 feet of decline across the assumed 9,500-acre area results in an observed coefficient of storage of approximately 0.007 (dimensionless). This value is quite appropriate for a semi-confined aquifer system, such as the Palo Alto area. FINAL - April 28, 2003 12 H:\Final\PaloAlto_WCO\6589A00\Rpt\GWSupplyFeasibilityStdy-Final.doc Table 1 Water Level Response Groundwater Supply Feasibility Study City of Palo Alto Well 1988 Extractions (acre-feet) Observed Water Level Decline During the 1988 Pumping Period (feet) Matadero 0 18 Hale 398 15 Fernando 0 25 Rinconda 627 25 Middlefield(1) 0 37 Meadows(2) 123 Data Not Available Peers Park(3) 357 Data Not Available Total 1,505 Average = 24 Notes: (1) Middlefield well water level decline likely reflects proximity (about 0.5 mile) to the operating Rinconda well. Similar effects are revealed for the Matadero and Fernando wells indicating that they are in the same basin as the operating wells. (2) The Meadows well was not highly productive and was destroyed following its use in 1988. No water level data was collected after 1988. (3) Water level data for the Peers Park well were not collected between the years 1988 and 1994. Subsequent data shows water level variation similar to the Hale well. Though some groundwater was pumped in 1991, the City ceased significant extractions in December 1988. Of interest is the rapid recovery of the basin after drought conditions, with water levels recovering to pre-pumping levels within 18 months of the extraction period. This also is reflective of the semi-confined nature of the basin and the active recharge efforts of SCVWD. 4.2 Summary of Basin Capacity Estimation From the drought pumping analysis presented above, the following conclusions are drawn regarding the groundwater basin capacity: • Water levels in the Palo Alto area have returned to almost predevelopment levels. Essentially, the groundwater basin in the Palo Alto area is full. • Data from 1988 pumping provides a good example from which to appraise groundwater extraction concepts. 1,500 acre-feet were extracted with limited impact. Water level impacts were short-lived and water levels returned to pre-pumping levels within 18 months. If pumping were performed during a non-drought period, the drawdown would likely be less. Initial drawdown may also be affected by the condition of the existing casings that may cause otherwise productive portions of the aquifer to FINAL - April 28, 2003 13 H:\Final\PaloAlto_WCO\6589A00\Rpt\GWSupplyFeasibilityStdy-Final.doc contribute to the supply. An aquifer test should be conducted following the City’s well construction and rehabilitation efforts to verify the basin’s response to pumping. • Utilizing the data from the 1988 pumping, the extraction of 1,000 acre-feet from the Palo Alto area will result in basin-wide water level declines on the order of 15 feet. Historical experience suggests that the basin will recover to pre-pumping levels within a couple years. It is expected that the water level would decline approximately 25 feet if the City were to extract 1,500 acre-feet in one year. • Occasional depletion of storage resulting from extractions in excess of annual average recharge appears to have minimal adverse impacts. • Seasonal fluctuations in water level record from Hale and Rinconada wells shows that Palo Alto’s pumpage does not occur autonomously. Palo Alto’s water level appears to be impacted by pumpers outside of SCVWD jurisdiction. From the above analysis, it appears that the following groundwater pumping scenario may be safely supported by the groundwater basin: • During drought conditions, 1,500 acre-feet may be withdrawn in one year as long as the aquifer is allowed to recover to pre-pumping levels before pumping is reinitiated. • 500 acre-feet per year may be withdrawn on a year-to-year basis. This practice, however, should be discontinued if the groundwater levels continued to drop to levels that may induce negative environmental impacts (see discussion below on subsidence, saltwater intrusion, and contaminant plume migration). The balance of this study is presented assuming the wells are used to supply 1,500 acre- feet per year (AFA) during droughts, or 500 AFA on a year-to-year or active basis. 5.0 POSSIBLE PALO ALTO GROUNDWATER SUPPLY SYSTEM A well system that could provide this level of service would need a capacity of about 1,000 gallons per minute (gpm) assuming the well is operated continuously for the year during the drought operation (1,500 AFA) or 2,000 gpm if the well is operated for only half the year. In addition, the well site must be able to accommodate the treatment equipment that may be required for this operation (as discussed above), and the environmental and public involvement efforts must conclude that installing treatment is feasible at the site. The May 2000 Study evaluated the existing and proposed well sites in terms of their relative ability to be used as drought or active supplies. That study provided the following ranking of the existing wells: • Hale and Peers Park are the best sites since they are existing wells that are high-capacity and have adequate adjacent space for treatment equipment. FINAL - April 28, 2003 14 H:\Final\PaloAlto_WCO\6589A00\Rpt\GWSupplyFeasibilityStdy-Final.doc • Rinconada is another existing high-capacity well but it lacks the space needed for treatment equipment (unless the equipment is constructed at the location of the existing tennis courts). • Fernando and Matadero do not have adequate capacity or space to be considered feasible active or drought supply sources. At the time the May 2000 Study was written, the City had not yet begun to implement the proposed new well projects. As such, these wells were generally ranked lower than the existing wells. The proposed well sites were ranked as follows: • The El Camino Park site was ranked among the highest because of the size of the site and its proximity to the SFPUC turnouts and the proposed reservoir, which would facilitate blending the well water with SFPUC water before it is delivered to the distribution system. • The Eleanor Pardee Park, the Library/Community Gardens, and the Roth sites (Old Palo Alto Medical Facility) were ranked high because of the size of each of these sites. • The Middlefield Road well site was ranked lowest because it is the most constrained site. It should be emphasized that none of the previous studies included performing either the environmental, public involvement, or other studies that are needed before any of the above sites can be considered truly feasible for well or water treatment facility construction. The City’s current on-going efforts (the Phase I and Phase II Water Supply Capital Improvement Projects) include performing these needed studies. If treatment or blending are not required, any of the City’s wells could be used for drought or active use assuming the required approvals (discussed above) are obtained. If, however, water treatment facilities must be constructed, it would be best to focus on a single site since only one well is needed to be within the identified capacity limits. In addition, focusing the permitting and engineering requirements on a single site is the most cost-effective approach for the City. For a drought supply with treatment, the best existing well sites are Hale and Peers Park. The best proposed well site for a drought supply source with treatment is El Camino, though the Roth site, the Library/Community Gardens, and Eleanor Pardee Park all appear to be feasible sites at this time. 6.0 POTENTIAL IMPACTS OF GROUNDWATER EXTRACTIONS The potential impacts from groundwater extractions derive from changes in groundwater flow directions that result from changes in water levels caused by extractions (pumping). As a preface to the following sections, a brief summary of the history of groundwater levels in the Palo Alto area and the Santa Clara Valley is presented. FINAL - April 28, 2003 15 H:\Final\PaloAlto_WCO\6589A00\Rpt\GWSupplyFeasibilityStdy-Final.doc Groundwater development in the Santa Clara Valley began around 1900. At that time most groundwater wells in the lower elevations of the Santa Clara Valley were artesian – that is, flowing at ground surface. As aggregate extractions increased, water levels fell progressively, subject to climatic variations, reaching depths of as much as 200 feet below ground surface by the early 1960s. With the importation of water to the Santa Clara Valley water levels began to recover. In Palo Alto, water levels are currently at elevations comparable to the 1910s. In wet winters, wells in the Palo Alto area now, if not controlled, flow at ground surface. 6.1 Subsidence One of the potential impacts of groundwater extractions is a decrease in the elevation of the ground surface known as land subsidence. Some of the negative effects of the subsidence are an increased risk of flooding, and damage to infrastructure. Subsidence has been associated to areas with significant groundwater pumping, natural gas production, or oil production. Groundwater is pumped from porous layers with higher hydraulic capacities, i.e., sand and gravel aquifers. As the pumping occurs, water from the confining layers of the aquifers is drawn into the porous aquifer. The aquifers consisting of sand and gravel tend to be incompressible, however, the confining layers may be compressible materials, such as clay. When the groundwater is pumped from these compressible layers the soils compress and the surface elevation starts to drop. This decline in elevation is the result of the physical properties of clay. Clay is comprised of platy minerals that are commonly oriented randomly within the clay deposit. With the removal of fluid and overburden pressure, the clay particles rotate such that they orient parallel with the ground surface. This rotation results in a decrease in vertical thickness of the deposit. The thickness loss is irreversible and the resulting elevation loss is permanent. However, land subsidence can be arrested with increased groundwater levels. In Santa Clara Valley, extractions since the turn of the century resulted in lowering of groundwater levels as much as 200 feet (-160 below sea-level). This lowering of water level resulted in as much as up to 12 feet of subsidence in some locations of the Santa Clara Valley. Subsidence in the Palo Alto area was between 2 and 4 feet. The amount of subsidence in a given area was a function of the amount of water level decline and the local geologic conditions. Areas with shallow bedrock experienced less subsidence than those areas underlain by sediments of substantial thickness. The relationship between water levels, pumpage, imported water supply, and subsidence (as measured in San Jose, CA) is shown on Figure 8. As can be seen in this figure, subsidence generally correlates with periods of falling water levels. Currently, land subsidence has essentially stopped in the Santa Clara Valley as a result of the increased groundwater levels resulting from the use of alternative water supplies and basin management. FINAL - April 28, 2003 16 H:\Final\PaloAlto_WCO\6589A00\Rpt\GWSupplyFeasibilityStdy-Final.doc Pa303f8-6589.cdr Figure 8 HISTORICAL DATA ON WATER USE, SUPPLY, AND SUBSIDENCE IN SAN JOSE, CA GROUNDWATER SUPPLY FEASIBILITY STUDY CITY OF PALO ALTO As discussed above, the loss of elevation associated with subsidence is the result of the reorientation of clay minerals within clay deposits. The compaction of these deposits is essentially irreversible in that when water levels subsequently rise, the clay minerals do not return to their original orientation. However, since these materials are now compacted, the lowering of water levels does not result in significant further compaction. If the City’s wells were used at the capacity limits considered herein, the result would be a transient lowering of water levels to levels less than 25 percent of the historical lows. As such, use of the wells should not result in renewed subsidence. There was no data collection focused on subsidence in the Palo Alto area during the last use of the wells (in 1988 and in 1991). The closest subsidence measurement station maintained by the SCVWD is approximately 10 miles to the south of Palo Alto. However, there are no known anecdotal reports of property damage from renewed subsidence in the Palo Alto area during this period of well use. 6.2 Saltwater Intrusion The movement of saltwater into freshwater aquifers is called saltwater intrusion. Under natural conditions, groundwater flows from areas of recharge on the land to areas of discharge; in coastal areas these are commonly the ocean or the bay. If groundwater extractions result in on-land water level elevations below sea-level, groundwater flow directions reverse and seawater moves from the ocean into coastal aquifers. Although the most common mechanism of seawater intrusion is the lateral movement of seawater through the offshore exposure of the aquifer, seawater intrusion can also occur vertically where depressed water levels in underlying aquifers induce flow from overlying water bodies into the aquifer. If the overlying water body is saline this also results in a type of seawater intrusion. This vertical movement of seawater is often distinguished from lateral movement of seawater by the designation of seawater infiltration. The coastal portion of the Santa Clara Valley aquifer system has historically been impacted by both seawater intrusion and seawater infiltration. Groundwater extractions in the Santa Clara Valley from the turn of the last century until the 1970s resulted in the maintenance of groundwater elevations that were chronically and increasingly below sea-level. As previously mentioned water surface elevations in the Palo Alto dropped at as much as 140 feet below sea-level. This resulted in the on-land movement of seawater from the Bay and in many areas the vertical movement of seawater from Bayland ponds used for salt harvesting and aquaculture. The rate of intrusion/infiltration is governed by the magnitude of the gradient: the steeper the gradient, the more rapid the movement of water through the aquifer. Seawater intrusion and infiltration has been arrested as the result of reduced groundwater extractions, water importation and basin management efforts. While currently arrested, seawater intrusion could be reactivated if water levels were again chronically below sea-level. However, because groundwater moves very slowly, the short- FINAL - April 28, 2003 18 H:\Final\PaloAlto_WCO\6589A00\Rpt\GWSupplyFeasibilityStdy-Final.doc term occurrence of below sea-level water levels, while briefly reversing the flow direction, results in little actual transport of saline groundwater. What transfer does occur, is reversed when flow directions return to normal. This would be the case for either the emergency supply operation for which the wells are currently permitted, or the possible drought supply that is discussed herein. 6.3 Contaminant Plume Migration Groundwater extraction modifies its natural flow direction. In the vicinity of an extraction well, groundwater flow directions are altered both vertically and horizontally resulting in the production of water from the well. Water produced from the well derives from a recharge area surrounding the well, the size and shape of this recharge area being a function of the hydrogeology and well design. This recharge area is commonly referred to as a capture zone of the well. If there are sources of contamination within the capture zone of a well, the well can become contaminated. Within an urbanized setting, the potential sources of groundwater contamination are limited to contamination associated with industrial and commercial land uses. Predominantly this is in the form of leaky underground storage tanks. This would include gas stations, industrial solvents from manufacturing or research, and dry cleaners. As part of the 1999 Study, all sources of contamination known by regulatory agencies were reviewed to determine the risk to City’s existing wells and proposed new well sites. This review revealed very few contamination sites in the areas surrounding the existing and proposed well sites. Most of the existing contamination is in the more industrial portions of the City – those portions west and south of the downtown area. Fortuitously, these areas are not the areas of the City with the most favorable hydrogeologic characteristics for water supply wells. The only identified contaminated sources in the area near the existing or proposed wells were the Shell gas station on Alma Street and the City of Palo Alto Fire Station. These locations are proximate to the proposed El Camino Well, and they both had leaky underground gasoline storage tanks. Both sites have been cleaned up and closed by the Regional Water Quality Control Board. The use of the wells at the capacity limits considered herein will temporarily modify groundwater flow patterns in the vicinity of the wells creating the potential for capture of contaminate plumes. However, based on available records there are no known contaminate plumes within the capture zones of the City’s existing or proposed wells. FINAL - April 28, 2003 19 H:\Final\PaloAlto_WCO\6589A00\Rpt\GWSupplyFeasibilityStdy-Final.doc 7.0 SUMMARY Once refurbished, the City’s five existing wells and the three proposed new wells will provide an excellent standby water source to be used during water supply emergencies such as a shutdown of the SFPUC system. If the Palo Alto City Council decided to use the wells during droughts or as supplemental sources to be used in conjunction with the SFPUC supply, the wells could also provide added benefits in terms of enhancing the reliability and redundancy of the City’s water supply. Any regular use considered in the future, however, should not exceed the reliable capacity of the groundwater basin to avoid such negative environmental consequences such as subsidence, saltwater intrusion, and contaminant migration. Groundwater pumping and water level data for the last 50 years were analyzed to help evaluate the basin’s response to pumping. It should be noted that the data collection and analysis is too limited to draw firm conclusions regarding the reliable basin capacity or sustainable yield that the City may be able to pump on an active basis. In addition, these values could only be derived after analyzing and accounting for natural recharge patterns and the pumping plans of the City’s neighboring utilities. To provide an initial analysis on issues related to other-than-emergency use of the wells, however, the following may be inferred from the data analysis presented herein: • Water levels in the Palo Alto area have returned to almost predevelopment levels. Essentially, the groundwater basin in the Palo Alto area is full. • Depending on the method, estimates of average annual recharge to the basin are between 38 and 3,800 acre-feet. A conservative year-to-year value is likely on the order of 500 AFA. • Data from 1988 pumping provides an example from which to appraise groundwater extraction concepts. 1,500 acre-feet were extracted with limited impact. Water level impacts were short-lived and water levels returned to pre-pumping levels within 18 months. If pumping were performed during a non-drought period, the drawdown would likely be less. These values should be revisited through an aquifer test performed following the City’s well construction and rehabilitation efforts. • Utilizing the data from the 1988 pumping, the extraction of 1,000 acre-feet from the Palo Alto area will result in basin-wide water level declines on the order of 15 feet. Historical experience suggests that depending on climatic conditions, the basin will recover to pre-pumping levels within a year or so. It is expected that the water level would decline approximately 25 feet if the City were to extract 1,500 acre-feet in one year. This decline, however, is not likely to induce significant detrimental environmental impacts since it is much less than the historical drawdown levels and is transient in duration. FINAL - April 28, 2003 20 H:\Final\PaloAlto_WCO\6589A00\Rpt\GWSupplyFeasibilityStdy-Final.doc FINAL - April 28, 2003 21 H:\Final\PaloAlto_WCO\6589A00\Rpt\GWSupplyFeasibilityStdy-Final.doc • Occasional depletion of storage resulting from extractions in excess of annual average recharge appears to have minimal adverse impacts. • Seasonal fluctuations in water level record from Hale and Rinconada wells show that Palo Alto’s pumpage does not occur autonomously. Palo Alto’s water level appears to be impacted by pumpers outside of SCVWD jurisdiction, possibly Menlo Park and East Palo Alto. Under drought conditions, impacts of all local pumpers will be superimposed on water level conditions. The limited analysis suggests that sustained year-to-year extractions of approximately 500 AFA may be possible with negligible water level decline. The actual extraction value would be dependent on the location and depth of the well, how many wells were being operated, and the extent at which neighboring utilities were operating their wells and climatic conditions. If extractions were periodic, as in response to drought or delivery reductions, extractions of 1,500 AFA are possible provided this use is short-lived (one year every three or so years) and the basin is allowed to recover after this use. These estimates were based on the best available data and on general knowledge of groundwater basin behavior. However, the data was limited, as the basin has not been actively pumped since 1963. When more information becomes available both from developing the City’s wells for emergency use and from data collected from the SCVWD’s monitoring well, these estimates will be re-examined. The level of well use described above is not expected to result in reinitiation of subsidence or seawater intrusion or the movement of contaminate plumes for the following reasons: • Reinitiation of significant subsidence would require the dewatering of sediments not dewatered as part of the water level declines of the last century. This would require water level declines of more than 140 feet. As proposed the operation of the wells would result in short term water level declines of between 20 and 30 feet, and dewatering of previously dewatered and compacted sediments. • The year-to-year 500 AFA extraction is intended to not lower groundwater levels substantially, which would preserve the natural groundwater flow direction and prevent saltwater intrusion. The periodic 1,500 AFA well use described above would result in transient occurrence of water levels below sea-level. While water level below sea-level will reverse the seaward gradient, the slow travel time of groundwater provides a buffer from seawater intrusion for transient use. • Operation of the wells would result in temporary disruption of natural flow directions and could effect movement of contaminate plumes. However, no known contaminate plumes exist proximate to the existing or proposed wells sites. December 1, 2015 Save Palo Alto’s Groundwater requests the Policy and Services Committee to recommend the following for Council approval: Institute an immediate moratorium on the issuing of dewatering permits for residential basements until: 1.State mandated drought restrictions are lifted and 2. The City prioritizes engaging a consultant, preferably with knowledge of the local aquifers to create a Groundwater Management Plan for Palo Alto 3.This Groundwater Management Plan should be incorporated Palo Alto’s Urban WaterManagement Plan, the next update which is due in July, 2016, and if practical, coordinated with efforts in San Mateo County as the San Francisquito Creek Sub-basin is shared between counties. Specific concerns to be addressed in the Groundwater Plan: a. Create and implement a sustainable groundwater budget for Palo Alto taking into account that this is a shared resource with neighboring cities and other entities. b. Consider the prospect of climate change including possible periods of extended drought and exceptional rains and that rising sea levels might led to greater possibility of saltwater intrusion. c.Integrate groundwater management policies to Palo Alto's Sustainability goals. d.Protection of water levels in both the deep and surface components of the aquifer e.Integrate groundwater management policies to Palo Alto's Sustainability goals. Additionally, the Groundwater Management Plan needs to be considered in the update to Palo Alto’s Comprehensive Plan, specifically N-18 and other applicable policies. If under Palo Alto's Groundwater Management Plan the water budget allows for dewatering, then: 1. Groundwater Pumping Allocations and Pricing a.Priority for dewatering should be given to public projects, e.g. the Public Safety Buildings b. Normal water rates should be charged for this water, and the water should be priced at or above replacement costs to the Cityc. Meter water to ensure accurate charges and to provide reliable data for the water budget d. Limit the issuance of dewatering permits to ensure that cumulative dewatering is within the groundwater budget 2.Best practices and zero-waste policies Adopt best practices and zero-waste policies for groundwater Attachment B: Correspondence a.The City will institute appropriate actions and policies to preserve a healthy groundwater level and flows with costs paid by the developing party, including i. requiring building practices and techniques that minimize dewatering, such as shallower pumping depths, shorter pumping periods, or methods that do notrequire dewatering ii.re-use of pumped water for (neighborhood) irrigation replacing use of potable water for irrigation iii.re-injection of the groundwater to the aquifer, preferably nearby iv.Explicit consideration should be given to the cumulative effects ofdewatering at multiple sites in the same geographical area and require site-specific dewatering plans that minimizes the cumulative impacts on the nearby properties, including requiring coordinated dewatering of such sites when appropriate. b.The City will create enforceable City policies and collect meaningful penalties whenpolicies are violatedc. Establish a roadmap to achieve “Zero Dewatering” waste within 5 years. 3. Zoning Update zoning for basement construction by applying existing policy concepts to allunderground construction:a.individual review, b.revised underground set back restrictions, including excavation, c.depth and volume restrictions, d. approved drainage requirements, specifically enhanced storm water collection andmitigation of the local impacts of a basement on groundwater flows,e.include basements, lightwells and below-grade construction and walls in FAR and SAR regulations. 4.Local Impacts of DewateringThe City will require a determination of impacts of groundwater pumping on nearbybuildings, infrastructure and trees or landscaping a.Applicants would determine and monitor the approximate extent of the temporary groundwater zone of depression caused by pumping b.Data will be readily available to the public online and of suitable quality to provide abasis for both understanding the aquifer and soils and to provide documentation in theevent of property damages 5. Storm Water Handling and Aquifer Recharge Applicants will minimize and mitigate the impacts and costs of basements on the City’sstorm water handling and maximize local aquifer recharge capabilities. 6. Avoidance of multi-year adverse impacts An qualified consulting firm will review Palo Alto's Water Budget every 2 years. Other than for emergency purposes, whenever water outflows exceed inflows an immediate moratoriumon issuing dewatering permits will occur. 1 MEMORANDUM TO: UTILITIES ADVISORY COMMISSION FROM: UTILITIES DEPARTMENT DATE: FEBRUARY 13, 2013 SUBJECT: Utilities Advisory Commission Review and Discussion of the 2013 Preliminary Assessment of Water Resource Alternatives RECOMMENDATION Staff requests that the Utilities Advisory Commission discuss the Preliminary Assessment of Water Resources Alternatives and the proposed next steps in the update of the Water Integrated Resource Plan (WIRP). No action is required. EXECUTIVE SUMMARY An Integrated Resource Plan provides a detailed evaluation of current and potential resources and policies and provides a blueprint to guide resource procurement and optimization for the future. The City completed its first Water Integrated Resource Plan (WIRP) in 1993, and updated the WIRP in 2003. Almost ten years have passed since the last WIRP, and it is time for an update to ensure policies and guidelines are consistent with community preferences and the changes that have occurred to the City of Palo Alto Water Utility. The WIRP update will include several phases, starting with the attached Preliminary Assessment of Water Resource Alternatives. The Preliminary Assessment describes each potential water resource alternative available to the City using information currently available. The next phase will be a more detailed analysis of various supply portfolio alternatives. Staff is seeking feedback from the UAC on the proposed alternatives identified for further review in the next phase. BACKGROUND The City prepared its first Water Integrated Resource Plan (WIRP) in 1993 when the City was faced with a decision to participate in a regional recycled water expansion program. The 1993 WIRP assessed the costs and benefits of the recycled water project compared to other supply alternatives, and ultimately concluded that recycled water was not cost effective relative to existing supply. In 2003, the City updated the WIRP. The 2003 WIRP indicated that supplies from the San Francisco Public Utilities Commission (SFPUC) were adequate during normal years, but Submitted at Committee meeting by Peter Drekmeier additional supplies were needed in dry years to avoid shortages. The key conclusions from the 2003 WIRP analysis were:  The City’s existing contractual entitlement with the SFPUC provides adequate supplies;  The cost to connect to the Santa Clara Valley Water District (SCVWD) treated water pipeline was prohibitive;  Continuous use of groundwater is not recommended;  The City should continue to evaluate recycled water; and  Continue the current Demand Side Measure programs and explore additional measures. In December 2003, Council adopted WIRP Guidelines (Attachment A) for the development of new water resources and the preservation of existing supplies, which are summarized below: 1. Preserve and enhance SFPUC supplies 2. Continue to advocate for an interconnection between SFPUC and SCVWD 3. Participate on the development of cost effective regional recycled water programs 4. Scope water conservation programs to comply with Best Management Practices (BMPs) 5. Maintain emergency water conservation measures to be activated in case of droughts 6. Retain groundwater supply options in case of changed future conditions 7. Survey community to determine its preferences regarding the best water resource portfolio 2003 WIRP Guideline Summary Review A summary of the current situation with respect to each of the 2003 WIRP Guidelines is provided below. Guideline #1 - Preserve and enhance SFPUC Supplies. This guideline had objectives including that: a) the SFPUC regional water system be rebuilt; b) the cost of improvements is fairly allocated; c) future water needs can be met; d) there are adequate supplies during drought; e) the community prepare for potential water outages; f) the City implement cost effective water conservation activities; g) water received must meet drinking water standards; h) the Master Contract is properly implemented and a new contract is in place prior to 2009; and i) there is ongoing support of efforts to protect health, safety and economic well-being of the water customers and community. The guideline was critical when the 2003 WIRP was completed since the SFPUC had not yet adopted its Water System Improvement Program (WSIP) and the City’s contract with SFPUC would expire in June 2009. In May 2008, the SFPUC adopted the WSIP and since then has been earnestly implementing the rebuild of the regional system. In June 2009, a new Water Supply Agreement was executed with San Francisco that resolved such issues as fair cost allocation, drought supply allocation, and water quality assurances. In addition, the City Council adopted the 2010 Urban Water Management Plan (UWMP) that establishes goals for water efficiency resources (Staff Report #1688). Guideline #2 - Advocate for an interconnection between the SFPUC and the SCVWD. In 2003 the SCVWD evaluated extending its treated water pipeline to serve Palo Alto and other north county water retailers. During SCVWD’s preparation of the Water Supply and Infrastructure Master Plan in 2012, staff again requested the SCVWD analyze a pipeline extension and reliability interconnection with the SFPUC system. The SCVWD declined to evaluate an extension in the plan, but indicated it may be considered in a future infrastructure reliability master plan. Guideline #3 – Actively participate in development of cost effective regional recycled water plans: In 2006, the City completed a Recycled Water market Survey Report to determine potential customers within the City, evaluate potential pipeline alignments, and provide preliminary cost estimates. In 2008, the City completed a Recycled Water Facility Plan, which identified a preferred pipeline alignment and prepared costs estimates for the preferred project. In 2010, the City of Mountain View and the Regional Water Quality Control Plant (RWQCP) completed a new recycled water pipeline to serve customers in the Mountain View area. Since 2010, the City has developed a Mandatory Use Ordinance, a Salinity Reduction Policy (CMR 121:10), is preparing environmental documents for the Palo Alto project, and has been actively pursuing grant and low interest loan opportunities. Most recently, the RWQCP completed a Long Range Facilities Plan (Staff Report #2914), which includes an assessment of the current and future recycled water program and identifies program needs. Guideline #4 – Focus Water DSM Programs to comply with BMPs: The City is a signatory to the California Urban Water Conservation Council’s Memorandum of Understanding (MOU) regarding urban water conservation. The City strives to implement programs that meet or exceed the current BMPs as directed in the MOU and the City’s 2010 UWMP contains aggressive water efficiency goals. Guideline #5 - Maintain Emergency Conservation Measures to be activated in case of droughts: The 2010 UWMP contains the actions and measures that will be implemented in response to a drought. Guideline #6 – Retain Groundwater Supply options in case of changed future conditions: The City is currently developing the Emergency Water Supply and Storage Project. Although the primary purpose of the project is to provide emergency water supplies during a catastrophic interruption of SFPUC service, it includes the capability for further retrofits to some or all of the new and refurbished wells for normal year use. However, the project’s Environmental Impact Report (EIR) includes a mitigation measure limiting groundwater pumping to a maximum of 1500 AFY during a drought. The SCVWD, in its role as the groundwater steward for Santa Clara County, recently completed an update to its Groundwater Management Plan. As part of the process, staff requested additional analysis on the groundwater basin in the Palo Alto area. This additional information may assist the City’s effort to modify the 1500 AFY limitation, if there is an interest in doing so. Guideline 7 – Survey Community to determine its preference regarding the best water resource portfolio. In June 2004, staff presented the results of the community survey to the UAC. The survey polled the community on the use of groundwater during a drought, and the results indicated water quality issues were a primary concern. The report recommended the City await the completion of the Emergency Water Supply and Storage project, and then proceed with an evaluation of using groundwater as a supplemental source during a drought. DISCUSSION It has been almost a decade since completion of the last WIRP. Several key milestones have occurred since then, and the water utility landscape continues to evolve in response to legislation, the regulatory environment, and community preferences. The changes since the 2003 WIRP are driving the need to re-evaluate existing conditions to determine if adjustments are needed. 2013 WIRP Update The 2013 WIRP update will review and make necessary adjustments to the existing WIRP guidelines so they are consistent with existing policies and reflect community preferences. The completion of the Preliminary Assessment (Attachment B) is the first step in the development of the 2013 WIRP. The Preliminary Assessment provides a general evaluation of current resources and potential future water resource alternatives based on the best available information. In some cases, the evaluation of the resource option is based on consultant reports and analysis that was performed over 10 years ago. Staff has refreshed the analysis to provide a current representation as best as possible. The potential water resources described in the Preliminary Assessment include: 1. Water from the SFPUC 2. Groundwater 3. Treated Water from the SCVWD 4. Recycled Water 5. Demand-Side Management 6. Sale of the City’s Individual Supply Guarantee Water resources that were evaluated in the 2003 WIRP process, but are not included in this Preliminary Assessment, include desalination, small scale groundwater wells for irrigation, and treated contaminated groundwater. One of the major changes since the 2003 WIRP is that the cost of SFPUC water has increased significantly and has become much more expensive than water from the SCVWD as shown in Figure 1 below. Figure 1: Actual and Forecast Cost* of SFPUC and SCVWD Water Supplies 0 200 400 600 800 1000 1200 1400 1600 1800 2000 2200 2400 $/ A c r e -Fo o t Fiscal Year SFPUC vs. SCVWD SCVWD - Groundwater Rate SCVWD Treated Water rate SFPUC Treated Water Rate ForecastActual * The bars for the SCVWD costs show a higher cost scenario that includes higher CIP spending. Given the current and projected costs of water from the SFPUC and SCVWD, a rough estimate of the total annual costs can be calculated if all of the City’s potable water supplies came from either the SFPUC, SCVWD treated water, or groundwater. Table 1 below shows the estimated annual cost in 2013, 2015, and 2020 for those three sources. Table 1: Estimated Cost of Water Supply Alternatives FY 2013 FY 2015 FY 2020 Water needs (AF/year) 13,500 14,243 14,971 Unit Cost ($/AF) SFPUC supplies $1,259 $1,594 $2,134 SCVWD treated water $725-905 $850-1180 $1185-1695 Groundwater $625-805 $750-1080 $1085-1595 Annual Cost ($million) with: 100% SFPUC supplies $17.00 $22.70 $31.95 100% SCVWD treated water $9.7-12.21 $12.1-16.8 $17.74-25.3 100% Groundwater (1) $9.7-12.21 $12.1-16.8 $17.74-25.3 (1) Cost includes O&M cost of $100/AF for operating the City’s wells As shown in Table 1, there are potentially significant cost savings if the City discontinued using water from the SFPUC and replaced it with groundwater or SCVWD treated water. However, there are also water quality impacts that the community will need to determine are acceptable. In addition, since the groundwater may not meet secondary drinking water quality standards, there may be additional costs for treatment that are not included in these cost estimates. Issues with Current Water Supplies Besides the increasing cost of supplies from the SFPUC, the City’s current water supply is vulnerable to water supply shortages in dry years. The current plans for dealing with these shortages are to request, and provide incentives for, customers to reduce water usage. In addition, groundwater is available as a supplemental supply in droughts. The new well planned at El Camino Park can be blended with SFPUC supplies in the new reservoir prior to introduction to the City’s distribution system to ensure that the water meets all water quality standards. Presently, the City can use 1,500 acre-feet/year (AFY), or about 12% of the City’s current annual usage, of groundwater. Water Supply Options to Further Evaluate Based on the Preliminary Assessment, staff has identified several water supply portfolio options that merit further evaluation. This evaluation may involve additional analysis and/or consultant assistance to provide more meaningful data for the various supply options to be properly characterized and evaluated. Before a recommendation can be developed, several issues require additional study and evaluation. These relate to the use of groundwater, SCVWD treated water, recycled water, and the sale of the City’s unused ISG to SFPUC supplies. The issues for each of these resource options that need more in-depth evaluation are described below. 1. Groundwater – The 1,500 AFY mitigation measure limitation on the use of groundwater reduces the City’s flexibility for using groundwater in droughts and in normal years. Staff plans to pursue modification of that restriction. This may require additional groundwater modeling and possibly an updated environmental review process. Depending on the amount of groundwater the City would seek to use, the supporting analysis could require intensive groundwater modeling and coordination with SCVWD, neighboring agencies and other stakeholders. 2. SCVWD treated water – Since the City has no current connection to SCVWD’s treated water system, using treated water would require an extension of the SCVWD’s West Pipeline to an interconnection point at Page Mill Road. An evaluation of this option may require an updated West Pipeline extension study similar to the one done in 2003. The study would evaluate the costs and cost allocation scenarios for the interconnection. Implementation of this alternative would require the City to execute several new contracts and revise the existing contract with the SFPUC. Staff anticipates the SCVWD will perform the necessary environmental reviews for a West Pipeline extension. 3. Recycled water – Recycled water is a unique, non-potable supply source that would augment the portfolio with a locally controlled, diverse supply capable of providing dual benefits from a water and wastewater perspective. As discussed in the Preliminary Assessment, the evaluation of a recycled water extension to serve the Stanford Research Park is underway and a recommendation on a future recycled water project depends on securing an outside funding source. Following completion of the environmental document, staff will prepare a financial feasibility report and make recommendations on an expansion of the recycled water distribution system. 4. Sale of the City’s unused Individual Supply Guarantee (ISG) to SFPUC supplies – Water transfers can be complicated and require time to structure. Considering recent events that have provided indicative pricing for a potential transaction, staff recommends the City begin the evaluation of a transfer of the City’s ISG. While potential revenues are a major factor in the recommendation to move forward, staff has been monitoring the differential between water consumption and the City’s ISG for some time. In light of the historical and projected ISG surplus, a sale of a small portion of the City’s ISG may be in the best interest of the community. Proceeds from a sale could reduce water rates or provide funds for increased conservation programs or the recycled water project. The evaluation of recycled water and a sale of some of the City’s ISG are proceeding independently. Examples of water supply portfolios that staff proposes to evaluate in more detail are shown in Table 2. Table 2: Water Supply Portfolios to Evaluate Portfolio SFPUC supplies SCVWD Treated Water Supplies Groundwater Status Quo 100% of normal year needs None Up to 1,500 AFY for supplemental supply in droughts Increased Groundwater 50% of normal year needs None 50% of normal year needs Treated Water Usage 50% of normal year needs 50% of normal year needs Up to 1,500 AFY for supplemental supply in droughts Only Treated Water and Groundwater None 50% of normal year needs 50% of normal year needs NEXT STEPS Preparation of the 2013 WIRP will proceed through FY 2013, and will likely extend into FY 2014 depending on the level of additional studies and outside consultant assistance that is appropriate. Staff will return to the UAC with more detailed information and supporting analysis for the different water supply portfolio options. Staff will also evaluate a potential ISG sale and return to the UAC with a recommendation on moving forward with a transaction. Finally, staff will continue ongoing efforts to complete an extension of the recycled water system to serve customers in the Stanford Research Park and return to the UAC with a financing plan once there is a reasonable expectation that supplemental outside funding can be secured. Following selection of preferred options based on the additional evaluations in the next phase, staff will prepare a Draft Water Integrated Resource Plan and propose modifications to the WIRP Guidelines. ENVIRONMENTAL REVIEW The UAC's review and discussion of the Preliminary Assessment of Water Resource Alternatives does not meet the California Environmental Quality Act's definition of a "project" under Public Resources Code Section 21065, thus no environmental review is required. ATTACHMENTS A. 2003 Water Integrated Resource Plan Guidelines B. 2013 Preliminary Assessment of Water Resource Alternatives PREPARED BY: REVIEWED BY: DEPARTMENT HEAD: NICOLAS PROCOS, Senior Resource Planner~ lf E RATOIYE, ,.,;~'°' o;cocto<, "''°"'~ Mooo,omoo' VALERI~ WIRP Guidelines Adopted by Resolution by the City Council on December 8, 2003 [CMR:547:03] Guideline 1 – Preserve and enhance SFPUC supplies: With respect to the City of Palo Alto Utilities’ (CPAU’s) primary water supply source, the San Francisco Public Utilities Commission (SFPUC), continue to actively participate in the Bay Area Water Supply and Conservation Agency (BAWSCA) to assist in achieving BAWSCA’s stated goal: “A reliable supply of water, with high quality, and at a fair price.” Objectives in support of that overall goal include: A. That the regional water system gets rebuilt cost-effectively and that BAWSCA monitor implementation of AB 1823 – San Francisco should safeguard the water system against damage from earthquakes and other foreseeable hazards. BAWSCA will monitor progress on the system repairs and on completing the requirements of the legislation that the BAWSCA agencies supported to oblige San Francisco to repair and rebuild the regional system. B. That the cost of improvements is fairly allocated – San Francisco should commit to maintaining cost-based pricing, with the costs of the wholesale water system shared between the City and its wholesale customers based on their proportionate share. C. That future water needs can be met – San Francisco must evaluate the ability of the regional system to meet future supply and capacity requirements and must use the BAWSCA agencies’ long-term water demand forecasts as the basis for regional water demand projections. D. That there are adequate supplies during droughts – San Francisco should arrange back-up supplies for dry years and should “drought proof” the entire service area, not just San Francisco itself. If rationing becomes necessary, San Francisco should use a system that allocates available water between San Francisco and wholesale customers in a way that (1) is fair and (2) avoids penalizing long-term conservation efforts and/or development of alternative supplies, such as recycled water. E. That communities prepare for potential water outages – San Francisco should coordinate with the BAWSCA agencies to develop a crisis management plan. F. That agencies implement cost-effective water conservation activities – San Francisco should provide agencies enough information so that they can prepare for possible outages, including the provision of conservation programs for their communities. BAWSCA can act as coordinator for these programs to improve the cost- effectiveness of agencies offering such programs. G. That water received must meet drinking water standards – San Francisco should continue to protect the purity of Hetch Hetchy water and commit to provide its wholesale customers with water that meets EPA and California drinking water standards. H. That the Master Contract is properly implemented and a new Master Contract is in place prior to 2009 – San Francisco should commit to maintaining cost-based pricing, with the costs of the wholesale water system shared between the City and its wholesale customers based on their proportionate share. I. That there is ongoing support of efforts to protect health, safety and economic well being of the water customers and communities – BAWSCA should maintain the support of the many allies who supported the legislative effort to ensure San Francisco repairs, rebuilds, and maintains the regional system. Guideline 2 – Advocate for an interconnection between SFPUC and the District: Work with the Santa Clara Valley Water District (District) and the SFPUC to pursue the extension of the District’s West Pipeline to an interconnection with the SFPUC Bay Division Pipelines 3&4. Continue to re-evaluate the attractiveness of a connection to an extension of the District’s West Pipeline. Guideline 3 – Actively participate in development of cost-effective regional recycled water plans: Re-initiate discussions with the owners of the Palo Alto Regional Water Quality Control Plant (PARWQCP) on recycled water development. In concert with the PARWQCP owners, conduct a new feasibility study for recycled water development. Since the feasibility of a recycled water system depends upon sufficient end-user interest, determine how much water Stanford and the Stanford Research Park would take. Guideline 4 – Focus water DSM programs to comply with BMPs: Continue implementation of water efficiency programs with the primary focus to achieve compliance with the Best Management Practices (BMPs) promoted by the California Urban Water Conservation Coalition. Guideline 5 – Maintain emergency water conservation measures to be activated in case of droughts: Review, retain, and prioritize CPAU’s emergency water conservation measures that would be put into place in a drought time emergency. Guideline 6 – Retain groundwater supply options in case of changed future conditions: Using groundwater on a continuous basis does not appear to be attractive at this time due to the availability of adequate, high quality supplies from the SFPUC in normal years. However, SFPUC supplies are not adequate in drought years and circumstances could change in the future such that groundwater supplies could become an attractive, cost-effective option. Examples of changing circumstances could be that the amount of water available to CPAU from the SFPUC for the long-term is reduced. This could occur if regulations or legislation require additional water to be made available to the Tuolumne River fisheries. In addition, in the future allocations or entitlements to SFPUC water may be developed. If those allocations are based on the dry- year yield of the system, allocations to all the users of the system, including CPAU, could be well below their current and projected future needs. CPAU should retain the option of using groundwater in amounts that would not result in land surface subsidence, saltwater intrusion, or migration of contaminated plumes. Guideline 7 – Survey community to determine its preferences regarding the best water resource portfolio: Seek feedback from all classes of water customers on the question of whether to use groundwater during drought to improve drought year supply reliability. At the same time, seek feedback on the appropriate level of water treatment for groundwater if it were to be used in droughts. Survey all classes of water customers to determine their preferences as to the appropriate balance between cost, quality, reliability, and environmental impact.             PRELIMINARY ASSESSMENT  OF WATER  RESOURCE  ALTERNATIVES      February 2013 i    2013 Preliminary Assessment  Table of Contents  List of Figures ___________________________________________________________ iii  List of Tables ___________________________________________________________ iii  List of Acronyms _________________________________________________________ iii  I. Introduction __________________________________________________________ 1  II. Background __________________________________________________________ 2  III. Water Supply History __________________________________________________ 3  IV. Water Use Projections _______________________________________________ 6  Urban Water Management Plan (UWMP) _________________________________________ 6  Water Conservation Bill of 2009 _________________________________________________ 7  Summary Water Resource Mix __________________________________________________ 7  V. Attributes Evaluated and Water Resource Alternatives Examined ______________ 8  Attributes Evaluated for each Water Resource Alternative ___________________________ 8  Water Resource Alternatives Examined __________________________________________ 9  VI. Water from the SFPUC ______________________________________________ 10  Availability _________________________________________________________________ 10  Cost ______________________________________________________________________ 12  Water Quality ______________________________________________________________ 13  Long Term Reliability ________________________________________________________ 13  Emergency Robustness _______________________________________________________ 15  Environmental impacts _______________________________________________________ 16  Sensitivity to Regulations _____________________________________________________ 16  VII. Groundwater _____________________________________________________ 17  Availability _________________________________________________________________ 18  Cost ______________________________________________________________________ 20  Water Quality ______________________________________________________________ 21  Long Term Reliability ________________________________________________________ 24  Emergency Robustness _______________________________________________________ 24  Environmental impacts _______________________________________________________ 24  Sensitivity to Regulations _____________________________________________________ 24  VIII. SCVWD Treated Water ______________________________________________ 25  Availability _________________________________________________________________ 26  Cost ______________________________________________________________________ 26  Water Quality ______________________________________________________________ 28  Long Term Reliability ________________________________________________________ 28  Emergency Robustness _______________________________________________________ 28  Environmental Impacts _______________________________________________________ 30  ii    Sensitivity to Regulations _____________________________________________________ 30  IX. Recycled Water ______________________________________________________ 31  Availability _________________________________________________________________ 32  Cost ______________________________________________________________________ 35  Water Quality ______________________________________________________________ 36  Long Term Reliability ________________________________________________________ 37  Emergency Robustness _______________________________________________________ 37  Environmental Impacts _______________________________________________________ 37  Sensitivity to Regulations _____________________________________________________ 37  X. Demand‐Side Management ____________________________________________ 38  Availability _________________________________________________________________ 38  Cost ______________________________________________________________________ 40  Water Quality ______________________________________________________________ 40  Long Term Reliability ________________________________________________________ 41  Emergency Robustness _______________________________________________________ 41  Environmental Impacts _______________________________________________________ 41  Sensitivity to Regulations _____________________________________________________ 42  XI. Individual Supply Guarantee Sale ________________________________________ 42  Availability _________________________________________________________________ 42  Cost ______________________________________________________________________ 42  Water Quality ______________________________________________________________ 43  Long Term Reliability ________________________________________________________ 43  Emergency Robustness _______________________________________________________ 43  Environmental Impacts _______________________________________________________ 43  Sensitivity to Regulations _____________________________________________________ 44       iii    List of Figures  Figure 1: Historic Water Use ........................................................................................................... 5  Figure 2: 2005 and 2010 UWMP Demand Forecast Projection Comparison ................................. 6  Figure 3: 20% by 2020 Compliance Forecast .................................................................................. 7  Figure 4: Summary Water Resource Composition .......................................................................... 8  Figure 5: SFPUC Actual and Projected Cost of Water ................................................................... 12  Figure 6: Historic Water Shortages at Maximum Demand Level (265 MGD) ............................... 15  Figure 7: Map of SFPUC Regional Water System .......................................................................... 16  Figure 8: Projected SFPUC and SCVWD Water Rates ................................................................... 21  Figure 9: West Pipeline Extension Map ........................................................................................ 26  Figure 10: Proposed Recycled Water Project ............................................................................... 32  Figure 11:  Palo Alto Existing Recycled Water Uses for FY 2004‐FY 2012 .................................... 34  Figure 12: Water Conservation Savings Goals .............................................................................. 39    List of Tables  Table 1: City Of Palo Alto Water Shortage Allocation .................................................................. 11  Table 2: Dry Year Shortfall under different demand scenarios .................................................... 14  Table 3: Projected Well Capacities ............................................................................................... 20  Table 4: Water Quality Parameters for Various Water Sources ................................................... 22  Table 5: Well Treatment Alternative Preliminary Cost Analysis ................................................... 23  Table 6: SCVWD Treated Water Connection Summary Costs ...................................................... 27  Table 7: Recycled Water Gross Cost Estimate .............................................................................. 35  Table 8: Water Savings vs. Goals .................................................................................................. 39  Table 9: Conservation Program Costs ........................................................................................... 40    List of Acronyms  AFY  Acre Feet per Year  BAWSCA Bay Area Water Supply and Conservation Agency  BMP Best Management Practice  CDPH California Department of Public Health  CEQA California Environmental Quality Act  CUWCC California Urban Water Conservation Council  CVP Central Valley Project  DSM Demand Side Management  EIR Environmental Impact Report  ESA Endangered Species Act  FERC Federal Energy Regulatory Commission  iv    GWMP Groundwater Management Plan  ISA Interim Supply Allocation  ISG Individual Supply Guarantee  ISL Interim Supply Limitation  MGD Million gallons per day  MOU Memorandum of Understanding  NEPA National Environmental Policy Act  PEIR Program Environmental Impact Report  PPM Parts per Million  RWQCP Regional Water Quality Control Plant  SCVWD Santa Clara Valley Water District  SFPUC San Francisco Public Utilities Commission  SRF State Water Resources Control Board State Revolving Fund  SWP State Water Project  SWRCB State Water Resources Control Board  TDS Total Dissolved Solids  TRC Total Resource Cost  UAC Utilities Advisory Commission  UWMP Urban Water Management Plan  WIRP Water Integrated Resource Plan  WSA Water Supply Agreement  WSIP Water System Improvement Program    Page 1    I. Introduction  Preparation of a Preliminary Assessment of Water Resource Alternatives is the first step  towards development of a Water Integrated Resource Plan (WIRP).  The Preliminary  Assessment collects the available information and data about all water resource alternatives  available to the City of Palo Alto.  The following are a summary of the main drivers for updating  the WIRP at this time.    a) Cost Increases – The San Francisco Public Utilities Commission (SFPUC) is midway through  the $4.6 billion Water System Improvement Program (WISP), which includes an upgrade of  the regional water system.  As a result of the WSIP, the cost of SFPUC water has risen  dramatically and will continue to do so.  With the increase in costs, other alternatives are  increasingly competitive with SFPUC supplies.      b) SFPUC Wholesale Water Charge – The SFPUC currently collects the wholesale revenue  requirement primarily through a volumetric water rate.  The SFPUC may propose changes  to the current wholesale rate structure that include a fixed charge based on the Individual  Supply Guarantee. Since the City has a relatively high Individual Supply Guarantee, this  could change the City’s cost dramatically and make other alternatives more cost‐effective.    c) Dry year need – The City has an Individual Supply Guarantee of 17.07 million gallons per  day (MGD) from the SFPUC system.  The City has no foreseeable supply deficiency in  normal years, but SFPUC supplies are inadequate during dry years.  A critical question to  address is the level of reliability the City will provide to residents and businesses and at  what cost.    d) Disposition of “Surplus” SFPUC Individual Supply Guarantee– The City currently uses  substantially less than its Individual Supply Guarantee.  Considering long lead times to  execute water transfers, it may be the time for the City to proceed towards a sale of a  portion of the Individual Supply Guarantee.   The sale could generate revenue for a variety  of options, including increased dry year reliability, conservation programs, a recycled water  project, or to reduce rates.    e) Alternative Supplies – The Santa Clara Valley Water District’s (SCVWD’s) groundwater and  treated water charges have historically been similar to the cost of SFPUC supplies.  Over  the last few years, and for the foreseeable future, SCVWD water charges will be lower than  SFPUC charges, making groundwater or a connection to the SCVWD’s treated water system  potentially cost‐effective alternatives to SFPUC water.    f) Use of Palo Alto Groundwater System – The City has recently refurbished the five older  wells, developed two new wells and is completing another new well.  One or more of the  Page 2    wells could be used to provide supplemental dry year supplies or as an alternative to  SFPUC supplies during normal years.    g) Legislative & Regulatory Risks – The City’s 2010 Urban Water Management Plan (UWMP)  incorporates recent and future legislative and regulatory requirements to provide a  comprehensive forward looking review of the water utility.  A major new development is  Senate Bill 7x‐7 (2009), which requires a 20% reduction in per capita water use by 2020.  II. Background  The first WIRP was prepared largely because the City was faced with a decision to participate in  a regional recycled water program.  This 1993 WIRP assessed the costs and benefits of a  recycled water project compared to other supply alternatives, and ultimately determined that  recycled water was not cost effective relative to existing supplies.  In 1999, the City began  working on a new WIRP, and completed the effort with approval by the City Council of the  WIRP Guidelines in December 2003 (CMR 547:03).  During the process to prepare the 2003  WIRP, several studies were conducted to inform the effort:    1. Water, Wells, Regional Storage, and Distribution System Study, 1999, Carollo Engineers –  This study identified system improvements to the distribution system to meet water  demands and fire flows following a catastrophic interruption of service on the SFPUC  system.  Among the recommendations was to refurbish the 5 existing wells and construct  three new wells and a new water storage tank.      2. Long Term Water Supply Study, 2000, Carollo Engineers – The report examined the issues  and costs of using new or rehabilitated wells as active sources of supply.  The alternatives  examined in the report included: (1) Using the wells for active supply either on a long term  basis or during droughts; (2) using groundwater for irrigation; and (3) connecting to the  SCVWD treated water pipeline.    3. Groundwater Supply Feasibility Study, 2002, Carollo Engineers – The report evaluated  whether operating one or two of the City’s water wells as active supplies would cause  significant decrease in groundwater levels or deterioration in groundwater quality”.    4. Santa Clara Valley Water District’s West Pipeline Extension Conceptual Evaluation Final  Report, 2003, SCVWD. – The report evaluated an extension of the existing SCVWD West  Pipeline to enable an interconnection of the Palo Alto and SCVWD systems at Page Mill  turnout.    The 2003 WIRP indicated that SFPUC supplies were adequate during normal years, but  additional supplies were needed in dry years to avoid shortages.  Since SFPUC supplies were  adequate in normal years, the following conclusions were drawn:    Page 3    1. The City’s existing Individual Supply Guarantee provides adequate supplies;  2. The cost to connect to the SCVWD treated water pipeline was prohibitive;  3. Continuous use of groundwater is not recommended;  4. The City should continue to evaluate recycled water;  5. Continue the current Demand Side Management programs and explore additional  measures; and  6. Additional supplies are needed in a drought.    Following approval of the 2003 WIRP, staff surveyed residential customers to gain a sense of  community preferences on the use of groundwater during a drought.  The survey asked  respondents to rank several options for water supply during a drought: (A) blend groundwater  with existing SFPUC supplies; (B) use no groundwater; and (C) treat groundwater at the well  location prior to introduction to the distribution system.     Survey respondents generally preferred Options B (no groundwater) and C (treat groundwater),  but Option A (blend groundwater) was not soundly rejected.  The results of the survey were  presented to the UAC in June 2004.  Based on the results staff made the following  recommendations:    1. Do not install advanced treatment systems for the groundwater at this time.  This option  is expensive, both in terms of capital and operating costs.  2. Blending at an SFPUC turnout is the best way to use ground water as a supplemental  drought time supply while maintaining good water quality.  3. Staff should await the conclusion of the environmental review process before  proceeding with any site selections for wells to be used in dry years.  4. Actively participate in the development of long term supply plans with the Bay Area  Water Supply and Conservation Agency (BAWSCA) and/or SCVWD.  5. Continue efforts identified in the Council approved WIRP  guidelines:  a. Evaluate a range of demand side management options to reduce long term  water demands.  b. Evaluate feasibility of expanding recycled water.  c. Maintain emergency water conservation measures to be activities in case of  droughts.  III. Water Supply History  The water utility was established on May 9, 1896, two years after the City was incorporated.   Local water companies were purchased at that time with a $40,000 bond approved by the  voters of the 750‐person community.  These private water companies operated one or more  shallow wells to serve the nearby residents.  The city grew and the well system expanded until  nine (9) wells were in operation by 1932.    Page 4    In December 1937, the City signed a 20‐year contract with the City and County of San Francisco  for water deliveries from the newly constructed pipeline bringing Hetch Hetchy water from  Yosemite to the Bay Area.  Water deliveries from San Francisco commenced in 1938 and well  production declined to less than half of the total citywide water demand.    A 1950 engineering report noted, "The capricious alternation of well waters and the [San  Francisco] water...has made satisfactory service to the average consumer practically  impossible."  Groundwater production increased in the 1950s leading to lower groundwater  tables and increasing water quality concerns.      In 1962, a survey of water softening costs to City customers determined that the City should  purchase 100% of its water supply needs from the San Francisco.  A 20‐year contract was signed  with San Francisco and the City’s wells were placed in a standby condition.  Since 1962 (except  for some very short periods) the City’s entire potable water has come from San Francisco’s  Hetch Hetchy regional water system administered by the SFPUC.     In 1974, several wholesale customers joined Palo Alto and filed a lawsuit against the San  Francisco in protest of an increase in water rates that was higher for wholesale customers than  it was for direct retail customers.  In 1984, settlement negotiations resulted in the “Settlement  Agreement and Master Water Sales Contract between the City and County of San Francisco and  Certain Suburban Purchasers in San Mateo, Santa Clara and Alameda Counties”.  The 25‐year  agreement was approved in 1984.  The 1984 agreement included the creation of a “Supply  Assurance” equal to 184 million gallons of water per day (MGD) for the benefit of the wholesale  customers.1  The agreement included a mechanism to allocate the 184 Supply Assurance  between the wholesale agencies.  The City’s allocation, or Individual Supply Guarantee (ISG), is  17.07 MGD.  Each agency’s ISG is perpetual in nature and survives termination or expiration of  the water supply contract with San Francisco.                                                              1 The Supply Assurance is expressed as an annual average and does not constitute an obligation on the part of the  SFPUC to meet daily or hourly peak demands.  Page 5    In 2009, a new 25‐year Water Supply Agreement (WSA) was executed between San Francisco  and the City.  The City’s historical water use and supply sources are illustrated in Figure 1.    Figure 1: Historic Water Use       Page 6    IV. Water Use Projections  The City of Palo Alto Utilities (CPAU) regularly prepares water supply and demand forecasts to  prepare financial forecasts, to meet regulatory requirements, or as part of ongoing regional  planning efforts.  Like many water agencies in California, the City has experienced a significant  drop in water use since 2006, which is largely attributable to weather, water conservation, and  the recent economic recession.    Urban Water Management Plan (UWMP)  The UWMP is submitted to the Department of Water Resources every five years, and City  Council approved the most recent 2010 UWMP in June 2011 (Staff Report 1688)2.   Water  demands forecast for the 2010 UWMP are shown in Figure 2 below.  For comparison purposes,  the forecast from the 2005 UWMP is also included in Figure 2.   The water use projection results  are revealing in that the City, along with most water agencies in California, did not anticipate  the dramatic drop in water demand from 2007 to 2009.  Potable water demands from 2009 to  the present appear to have leveled off and have begun to trend upwards again, albeit slowly,  and it remains to be seen if water demands will follow the increase forecasted in the 2010  UWMP.    Figure 2: 2005 and 2010 UWMP Demand Forecast Projection Comparison  0 1,000,000 2,000,000 3,000,000 4,000,000 5,000,000 6,000,000 7,000,000 8,000,000 9,000,000 1965 1970 1975 1980 1985 1990 1995 2000 2005 2010 2015 2020 2025 2030 An n u a l W a t e r U s e ( C C F / Y e a r ) Year Water from San Francisco 2010 UWMP Forecast 2005 UWMP Forecast Individual Supply Guarantee Actual Forecast                                                           2 Typically, UWMPs are due December 31 of years ending in 0 and 5. However, a six‐month extension  was granted  to allow suppliers to comply with new legislation (Senate Bill X7‐7).  Page 7      Water Conservation Bill of 2009  The City is subject to ongoing changes in the regulatory and legislative environment, though  few are as explicit as SB X7‐7, the Water Conservation Bill of 2009.  SB X7‐7 was enacted in  November 2009 and requires water suppliers to reduce the average per capita daily water  consumption in their service territories 20% by 2020.  To monitor the progress towards  achieving the 20% by 2020 target, the bill also requires urban water retail providers to reduce  per capita water consumption 10% by 2015.  Figure 3 illustrates the projected 2015 and 2020  state‐mandated compliance targets and provides preliminary information on the City’s need for  future action to meet SB7x‐7 requirements.      Figure 3: 20% by 2020 Compliance Forecast  100 125 150 175 200 225 250 Ga l l o n s P e r C a p i t a P e r D a y Year Actual Forecast 2015 Target = 200.6 SB7 Baseline 2020 Target = 178.6   Figure 3 indicates that the City is on track to meet both the 2015 and 2020 state‐mandated  compliance targets.    Summary Water Resource Mix  The 2010 UWMP provided detailed information on baseline water resources through 2030.    SFPUC supplies were assumed to remain the primary potable supply for the foreseeable future,  Page 8    but were not forecasted to increase dramatically over the 20‐year planning horizon.  Recycled  water consumption was projected to continue at current levels and no expansion was assumed  in the 2010 UWMP.  Finally, demand side management and conservation program penetration  and savings were projected to increase dramatically from the 2005 UWMP.   A representation  of the future water resource mix is provided in Figure 4.    Figure 4: Summary Water Resource Composition    V. Attributes Evaluated and Water Resource Alternatives Examined   Attributes Evaluated for each Water Resource Alternative  In this section, each potential water resource option is evaluated to allow each alternative to be  compared to each other.  The purpose of this evaluation is to provide the best available  information on each water resource alternative and to identify data deficiencies that need to  be addressed.  The attributes evaluated for each alternative are listed below:    1. Availability – The quantity, timing, peak flow or capacity, and any expected changes  over time.  2. Cost – The capital and O&M costs of the proposed action (including system upgrades,  project lifetime, energy costs, chemicals, technical innovation, customer costs, etc.), the  manner which the cost is incurred (pay‐as‐you‐go, debt finance, etc.).  Page 9    3. Water Quality – All options must meet water quality regulations, but options may differ  in their relative water qualities (i.e. taste, odor, color, hardness, mineral content, trace  levels of contaminants, etc.).  4. Long Term Reliability – What is the reliability of the source under different conditions?  What future conditions could affect water deliveries?  5. Emergency Robustness – Will the resource perform under various scenarios, including  an interruption of SFPUC supplies?  6. Environmental impacts – Are there anticipated environmental impacts and what level  of environmental review is required?  7. Sensitivity to Regulations – Is the resource vulnerable or does it have strength in view  of existing or impending federal, state, or local regulations?    Water Resource Alternatives Examined   The water resource alternatives evaluated in this report include:  1. Water from the SFPUC  2. Groundwater  3. Treated Water from the SCVWD  4. Recycled Water  5. Demand‐Side Management  6. Sale of the City’s Individual Supply Guarantee    Water resources that were evaluated in the 2003 WIRP process, but are not included in this  Preliminary Assessment, include:    1. Desalination – BAWSCA is evaluating several desalination alternatives as part of recent  long range supply studies.  When this effort is complete, this alternative can be  evaluated.    2. Small scale irrigation wells  – The City is focusing its efforts on the capital program to  improve the municipal well system to meet the dual purpose of providing emergency  and supplemental potable supplies.  Currently, individuals may drill their own wells  without City review or permits, but are subject to rules and restrictions of the Santa  Clara Valley Water District (SCVWD) and must obtain a permit from the SCVWD. The City  does have the option of using small wells for irrigation of large landscapes, such as for  City parks.  However, the cost to maintain and operate small wells and locate a site for  such facilities is problematic.    3. Treated Contaminated Groundwater – There are several entities in the City that treat  contaminated groundwater and discharge the groundwater to the storm drain system  and, to a lesser extent, the sanitary sewer system.  The primary purpose of these  facilities is to remediate contaminated groundwater with finite operations.  The Santa  Clara County Oregon Expressway dewatering pumps are the exception, and they  discharge significant amounts of nuisance groundwater to the storm drain system to  Page 10    keep the underpass dry.  The City evaluated the capture and conveyance of the Oregon  Expressway groundwater for irrigation purposes and determined the effort would  require significant conveyance and storage infrastructure investments that are not cost  effective.  VI. Water from the SFPUC   The City currently purchases 100% of its potable supplies from the SFPUC under the 2009  Water Supply Agreement (WSA).  The WSA is administered for the City by the Bay Area Water  Supply and Conservation Agency (BAWSCA).  BAWSCA represents the interests of 24 cities and  water districts and two private utilities that purchase wholesale water from the San Francisco  regional water system.  These entities provide water to 1.7 million people, businesses and  community organizations in Alameda, Santa Clara and San Mateo counties.   The City of Palo  Alto is a member of BAWSCA and has a City Council appointed representative on the BAWSCA  Board of Directors.    Availability  The City’s right to water from the SFPUC system is embodied in the 2009 WSA.  The City’s  Individual Supply Guarantee (ISG) of 17.07 MGD is a perpetual right, but the delivery of water is  subject to interruption for reason of water shortage, drought, or emergency.      Normal Year SFPUC Supplies  While the City’s ISG is 17.07 MGD, the City’s water needs are currently only about 11.5 MGD.   The WSA includes an interim water delivery limitation3 from the SFPUC system of 265 MGD  until its expiration in 2018.   The City’s share of the interim limitation, or its Interim Supply  Allocation (ISA), is 14.70 MGD.   Based on the water demand forecast from the 2010 UWMP,  there is no foreseeable need for additional supply beyond the City’s Individual Supply  Guarantee, or the ISA.    Dry Year SFPUC Supplies  SFPUC’s WSIP includes a goal of no greater than a 20% system‐wide supply reduction on the  SFPUC system during a drought.  The 2009 WSA includes a water shortage allocation plan to  share water from the regional system between the SFPUC retail and wholesale customers  during a shortage of up to 20% (Tier I plan).  The wholesale customers further divided the  wholesale allocation based on a formula adopted by all the wholesale customers (Tier II plan).   The detail of the allocation methodology is included in the City’s 2010 UWMP (Section 7 –  Water Shortage Contingency Plan) and was approved by City Council in February 2011 (Staff  Report 1308).  The Tier II formula expires in 2018, unless extended by mutual agreement of the  BAWSCA members.  Table 1 summarizes the effect of the water shortage allocation formula on                                                         3 This limitation applies to all users of the San Francisco regional water supply system, the City of San Francisco and  all the BAWSCA member agencies.  Page 11    Palo Alto during a 20% SFPUC system‐wide reduction under low demand and high demand  scenarios.4    Table 1: City Of Palo Alto Water Shortage Allocation     Palo Alto Allocation (low demand)   Palo Alto Allocation (High demand)  (a) Baseline Demand (MGD) 11.63 13.33  (b) Drought Allocation (MGD) 8.94 10.011  (c) Reduction from Baseline Demand (b‐a)  (MGD) ‐2.69 ‐3.32  (d) Percentage reduction from Baseline  Demand (c/a) ‐23.12% ‐24.90%    The results in Table 1 indicate that the City will experience a water supply deficit of 23‐25% in  the event of a 20% system‐wide water shortage on the SFPUC system.                                                                4 In general, changes in Palo Alto demand patterns track many of the other BAWSCA members.  However, the  ultimate allocation to each BAWSCA agency depends on many factors, including the water use of each agency  relative to each other.  For these reasons, staff can only provide an approximation of the potential cutback.  Page 12    Cost  The City purchases 100% of its potable water supply from the SFPUC, with the current cost  structure composed of a volumetric charge and a small fixed monthly meter charge.  With the  $4.6 billion WSIP well underway, the cost of SFPUC water has increased sharply.  Recent region‐ wide water consumption declines have intensified the problem since the cost is spread over  fewer sales units.  The historic and projected cost of SFPUC water is illustrated in Figure 5.    Figure 5: SFPUC Actual and Projected Cost of Water  0 200 400 600 800 1000 1200 1400 1600 1800 2000 2200 2400 $/ A c r e ‐Fo o t Fiscal Year SFPUC Cost Projection SFPUC Projected Rate SFPUC Actual Rate     While the SFPUC charges wholesale customers based on how much water is used, the costs of  the SFPUC system are almost entirely fixed costs – in other words, even if usage drops the cost  to operate the system (O&M, debt service, etc.) remains essentially the same5.        The SFPUC water cost projections in Figure 5 assume that the current rate structure remains in  place.  However, the WSA provides some flexibility for the SFPUC to adjust rate structures and  the SFPUC recently signaled an interest in exploring alternative rate structures6  including  increasing the fixed charge component and allocating charges based on the ISG, rather than  actual water usage.  The City’s share of the costs paid by the BAWSCA agencies (the “Wholesale  Revenue Requirement”), steadily decreased from 8% in 1998 to 7.2% in 2010 as the City’s  proportional share of water purchases dropped relative to the other BAWSCA agencies.  In                                                         5 The SFPUC system is largely gravity fed, so little variable O&M is required for water deliveries. 6 SFPUC Comments, July 2012 BAWSCA Board of Director’s meeting  Page 13    recent years the City’s share of the Wholesale Revenue Requirement has increased slightly,  probably as a result of several SFPUC customers making economic decisions to reduce SFPUC  purchases to minimum amounts in favor of other, less costly supplies.  The City’s ISG of 17.07  MGD is approximately 9.23% of the total BAWSCA agencies’ Supply Assurance of 184 MGD.  If  collection of the Wholesale Revenue Requirement were to be based on each agency’s ISG, the  City could pay 20‐30% more for water annually, with little apparent increase in benefit.    Water Quality  SFPUC supplies are extremely high quality.  See Table 4 which lists key water quality parameters  for SFPUC water, SCVWD treated water and groundwater.   Water provided by the SFPUC is a  mix of Hetch Hetchy water and water from the East Bay and Peninsula reservoirs.  In an average  year, Hetch Hetchy water makes up 85% of the mix.  Due to maintenance requirements, the  SFPUC typically will shut down the Hetch Hetchy supply for a period during the low demand  winter months and draw from the local reservoirs.  It is not unusual to experience temporary  water quality changes due to these events, though the water still meets all drinking water  quality standards.    Since completion of the 2003 WIRP, there were two noteworthy operational changes on the  SFPUC system that related to water quality:  In 2004, the SFPUC starting using chloramine  instead of chlorine as the primary drinking water disinfectant.  In 2005, San Francisco began  adding fluoride to the water supply.  Up until then, the City introduced fluoride at the SFPUC  turnouts, but ceased to do so once the SFPUC began providing fluoridation from a centralized  facility7.    Long Term Reliability  Recent demand projections do not forecast a normal year supply deficiency, given the  perpetual nature of the City’s Individual Supply Guarantee.  However there is one situation  where the City’s Individual Supply Guarantee could be reduced.  Under the terms of the 1962  contract between it and San Francisco, the City of Hayward’s contractual entitlement from the  SFPUC system essentially equals its water demand.  In theory, since the collective Supply  Assurance of the wholesale customers cannot exceed 184 MGD, if Hayward’s water usage  increases substantially, the other wholesale agencies could experience a proportional ISG  reduction to ensure the 184 MGD limit is not exceeded.  The most recent water use projection  shows this will not be an issue until at least 2030, and it will proceed gradually in any event.    SFPUC’s level of service goal is to meet dry year delivery needs while limiting rationing to a  maximum 20% system wide reduction in water service during extended droughts.  However,                                                         7 In 1957 the voters in Palo Alto adopted a measure that requires fluoride be added to the City’s water supply (Palo  Alto Municipal Code Section 12.24.010).    Page 14    recent events have called into question the SFPUC’s ability to maintain a level of service of no  greater than 20% reduction8.    BAWSCA and its member agencies are developing the Long Term Reliable Water Supply  Strategy to quantify when, where, and how much additional supply reliability and new water  supplies are needed throughout the BAWSCA agencies’ service area through 2035.  The report  revealed that several agencies have normal year needs in excess of their ISG and all agencies  have varying dry year deficiencies.  The report also identified several potential resource  alternatives to address these shortfalls, including desalinization, recycled water, and water  transfers.    The BAWSCA report (Section 3.2 of the Phase IIA report) includes a representation of potential  dry year cutbacks based on historic hydrologic conditions for the period from 1920 through  2002.  The analysis used the SFPUC hydrologic system’s operational model to evaluate the  frequency and magnitude of droughts on the system over the 83 years with all WSIP related  projects complete.   The results, as shown in Table 2, indicate there is little supply cutback risk  under low demand scenarios, but the risk rises as demands increase.    Table 2: Dry Year Shortfall under different demand scenarios  Demand Scenario  Number of Years of Projected Supply Cutbacks to the Wholesale  Customers Over 83‐year history  18% Average Wholesale  Customer Supply Cutback  (10% System‐wide shortfall)  29% Wholesale Customer  Supply Cutback  (20% System‐wide Shortfall)  Minimum Demand  Scenario (224 MGD) 0 0  Intermediate Demand  Scenario (252 MGD) 7 1  Maximum Demand  Scenario (265 MGD) 6 2                                                              8 Environmental flow requirements at Crystal Springs and Calaveras Dam were greater than anticipated.  A 2 MGD  water transfer between the Modesto Irrigation District and SFPUC was also rejected recently by the MID Board.  Page 15    Figure 6 provides a representation of the supply cutbacks that would have been experienced  under the maximum demand scenario using historic hydrologic data with all WSIP projects  complete.  The results provide an illustration of the frequency and magnitude of droughts in  the past under the high demand scenario, and are helpful in framing future dry year risks.  As  shown, over the 83 year hydrologic period, there would have been 8 years with water  shortages – 6 years with a 10% system‐wide reduction and 2 years with a 20% system‐wide  reduction.    Figure 6: Historic Water Shortages at Maximum Demand Level (265 MGD)      Clearly there is a potential deficiency in SFPUC supplies during dry years, though the overall  impact and frequency will depend on decisions related to dry year contingency plans and future  portfolio adjustments that could be made to remedy the supply deficiency.  As identified in the  2010 UWMP, the City has developed a Water Shortage Contingency Plan for implementation  during a drought.  The Water Shortage Contingency Plan identifies several stages of drought  response, depending on the degree of supply reduction required.  Responses range from  informational outreach to severe water use restrictions and modified rate structures.  The City  also has the option of pumping groundwater as supplemental supply in water shortage  situations.  This option is discussed in more detail in the section on groundwater.    Emergency Robustness  Since the SFPUC is the City’s only potable supply source, the City is vulnerable to service  interruptions on the SFPUC system.  One of the major drivers behind the WSIP was to address  reliability deficiencies, which under some circumstances could have resulted in an interruption  of SFPUC service for up to 60 days following a catastrophic event such as an earthquake.  The  Page 16    WSIP level of service objective for seismic reliability is to deliver basic service9 within 24 hours  after a major earthquake.  The performance objective is to provide delivery to at least 70 per  cent of the turnouts in each region, and full restoration to meet average day demand within 30  days after a major earthquake.  Palo Alto may be better situated than other agencies in having  two distinct connection points to the SFPUC system: three SFPUC connections are served by the  Palo Alto Pipeline connection to Bay Division Pipelines 1 and 2, and two SFPUC connections are  served by Bay Division Pipelines 3 and 4.  Figure 7 below is a map of the SFPUC regional water  system.    Figure 7: Map of SFPUC Regional Water System      The City is currently completing the Emergency Water Supply and Storage project.  The primary  goal of the project is to maintain basic water service and fire‐flows in all pressure zones in the  City following a catastrophic interruption of SFPUC service.  The project allows the City to  maintain water supply in the event that the SFPUC supplies are disrupted.    Environmental impacts  The SFPUC supply is the current baseline supply source for the City of Palo Alto.  Subsequent  sections analyze several alternatives to the current and projected supply mix, and the resulting  potential environmental impacts.  Increased water use within an agency’s ISG does not require  any action by an agency’s governing body, and therefore does not trigger any California  Environmental Quality Act (CEQA) review obligation.     Sensitivity to Regulations  For many water systems in California, the availability of water supplies depends on many  factors, including legislative and regulatory changes that may impact future supply conditions.                                                           9 Basic service is defined as average winter month usage.    Page 17    The SFPUC system is no different, and has several future regulatory risks that could impact  water supply reliability and/or cost10:    1. Federal Energy Regulatory Commission (FERC) relicensing of the Don Pedro Project  a. State Water Resources Control Board (SWRCB) 401 Certification of FERC  relicense  b. Endangered Species Act (ESA) Section 7 consultation for FERC relicense  2. Central Valley Total Maximum Daily Load regulations  3. Bay‐ Delta proceedings (SWRCB, Legislative actions)  4. ESA Habitat Conservation Plans for SFPUC local watersheds    The SFPUC manages these risks, with support from BAWSCA and the wholesale customers.  VII. Groundwater  The Santa Clara Valley Water District (SCVWD) manages an integrated water resources system  that includes the management of groundwater, supply of potable water, flood protection and  stewardship of streams on behalf of Santa Clara County's 1.8 million residents.  The SCVWD  manages ten (10) dams and surface water reservoirs, three (3) water treatment plants, nearly  400 acres of groundwater recharge ponds and more than 275 miles of streams.  The SCVWD  provides wholesale water and groundwater management services to municipalities, private  water retailers, and individual property owners operating groundwater wells in Santa Clara  County.    Although the City currently purchases all of its potable water from the SFPUC system, the City  maintains close involvement with the SCVWD as it is an important water wholesaler and the  steward of groundwater resources in Santa Clara County.  The city also partners with the  SCVWD on conservation activities.  The community is represented on the SCVWD Board of  Directors by the District 7 Director.  The City’s mayor also appoints a representative to  represent the City on the SCVWD Commission, an advisory body to the SCVWD Board of  Directors.    The SCVWD’s 2012 Water Supply and Infrastructure Master Plan describes how the SCVWD will  support future water supply needs and reliability.  The adopted strategy identifies conservation,  increased recycled water use, indirect potable reuse, additional groundwater recharge ponds,  grey water, imported water reoperations, and dry year options as important components of the  plan.    The City of Palo Alto has several policies embodied in the Comprehensive Plan that relate to  groundwater and water supplies.  The policies don’t provide a preference for the use of                                                          10 Source: SFPUC’s 2010 UWMP  Page 18    groundwater, but indicate preservation of groundwater conditions is of critical importance to  the City.  The relevant policies are listed below, with program elements, if applicable:    1. POLICY N‐51: Minimize exposure to geologic hazards, including slope stability,  subsidence, and expansive soils, and to seismic hazards including ground shaking, fault  rupture, liquefaction, and land sliding.    2. POLICY N‐18: Protect Palo Alto’s groundwater from the adverse impacts of urban uses.  a. PROGRAM N‐22: Work with the SCVWD to identify and map key Groundwater  recharge areas for use in land use planning and permitting and the protection of  groundwater resources.  3. POLICY N‐19: Secure a reliable, long‐term supply of water for Palo Alto.     Availability  As a city in Santa Clara County, Palo Alto has the ability to pump groundwater with the  understanding that SCVWD will appropriately manage the groundwater resources in the  county.   Groundwater conditions throughout the county are generally very good11.   Groundwater elevations have generally recovered from overdraft conditions throughout the  basin since the 1987‐1992 drought, inelastic land subsidence has been curtailed, and  groundwater quality supports beneficial uses.    Background  The SCVWD last published a Groundwater Management Plan (GWMP) in 2001.  Since that time,  SB 1938 and other legislation have amended the requirements for groundwater management  plans.  The 2012 GWMP was prepared under existing groundwater management authority  granted by the District Act.  The purpose of the 2012 GWMP is to characterize the SCVWD  groundwater activities in terms of basin management objectives, strategies, and outcome  measures.    General groundwater conditions in the area are detailed in the SCVWD 2012 GWMP.  The City  of Palo Alto overlies the Santa Clara sub basin.  The Santa Clara sub basin is divided into upper  and lower aquifers, which are separated by low permeability clays and silts.  The SCVWD refers  to these as the shallow and principal aquifer, with the latter generally defined as 150 feet below  ground surface.  The principal aquifer is the primary drinking water aquifer, and is the source  for the any increased reliance on groundwater to meet current or future demands.  The upper,  or shallow, aquifer is of poorer quality and has limited uses beyond small to medium size  distributed irrigation systems. The SCVWD is responsible for managing the groundwater basin  to ensure there is adequate supply and overdraft conditions are minimized.       The SCVWD accomplishes this goal by maximizing conjunctive use, the coordinated  management of surface and groundwater supplies, to enhance supply reliability.  Programs to  accomplish this goal include the managed recharge of imported and local supplies, in‐lieu                                                          11 SCVWD 2012 Groundwater Management Plan  Page 19    groundwater recharge through the delivery of treated surface water12 and acquisition of  supplemental water supplies, and programs to protect, manage and sustain water resources.       Managed and in lieu recharge programs are in balance with withdrawals and the basin is not  currently in overdraft conditions.  The groundwater conditions in the Santa Clara sub‐basin  vary, and groundwater pumping from different locations will have different effects depending  on location, elevation, recharge conditions, and pumping activity.    Emergency Water Supply and Storage Project  As part of the Emergency Water Supply and Storage project, the City has refurbished five older  wells, constructed two new wells, and is constructing another new well and a new 2.5 million  gallon storage reservoir and pump station.  The primary goal of the project is to improve the  City’s emergency water supply capability.  Together with the City’s existing water storage  system, the project will support a minimum of eight hours of normal water use at the maximum  day demand level and four hours of fire suppression at the design fire duration level and will be  capable of providing normal wintertime supply needs during extended shutdowns of the SFPUC  system.  The proposed project would provide up to 11,000 gallons per minute (gpm) of reliable  well capacity and an additional 2.5 million gallons of water storage for emergency use.  The  groundwater system may also be used to a limited extent during drought emergencies, but is  subject to the following mitigation measures, as stated in the Environmental Impact report (EIR)  completed for the project13:    1. An aquifer test shall be conducted following the City’s well construction and  rehabilitation efforts to verify the basin’s response to pumping; and    2. Emergency demand pumpage shall be limited to 1,500 acre‐feet (AF)14 in one year.  Following this level of pumpage, groundwater production shall be restricted until  groundwater levels recover to pre‐pumping levels.    All wells are currently permitted and designated by the California Department of Public Health  as “Standby” and, as such, can only be used for 5 consecutive days up to 15 days in a year15.    Once the project is complete, the wells may collectively supply up to 1,500 AF per year during a  drought, with restrictions on when the wells can resume pumping following that level of  groundwater extraction.  It is important to note that the pumping restriction only applies to the  project as defined in the CEQA documents.  This includes the 5 existing wells and 3 new wells.   Individual property owners can install their own wells and pump groundwater.                                                             12 The SCVWD and the Santa Clara County SFPUC customers are partners in conjunctively managing the water  resources in the county.  The SFPUC customers in the county have contracts with the SFPUC.  The SCVWD has no  contractual relationship with the SFPUC. 13 Environmental Impact Report, Emergency Water Supply and Storage project, Mitigation Measure 3.5‐4(a) & 4(b) 14 1500 AF/Year is equal to 1.34 MGD, or approximately  12% of FY 2012 water consumption 15 California Code of Regulations, Title 22, Section 64414(c).  Page 20    The pumping restrictions for the well system are mitigation measures in the EIR prepared for  the Emergency Water Supply and Storage project.  Any increase in the current restriction could  require new or supplemental environmental review.  The SCVWD has indicated that the process  to increase the current limitation will require supporting information on the sustainable yield of  the groundwater basin in order to demonstrate increased pumping by the City will not have  significant impacts16.     The capacities of the City’s wells are listed in Table 3.  As shown in the table, if all 8 wells were  used full time, they could produce 13.3 MGD, which is equivalent to almost 15,000 AF per year.      Table 3: Projected Well Capacities  Name Capacity (MGD)Status Fernando 0.5544 Refurbished Well/Fully Operational Hale 1.8432 Refurbished Well/Fully Operational Matadero 0.864 Refurbished Well/Fully Operational Peers 1.872 Refurbished Well/Fully Operational Rinconada 4.464 Refurbished Well/Fully Operational Eleanor Pardee 1.296 New Well/Fully Operational Library 1.008 New Well/Fully Operational El Camino Park 1.44 New Well/Under Construction Total 13.3     During the drought in the late 1980’s, substantial pumping by pumpers in the county and  neighboring jurisdictions resulted in a dramatic drop in the groundwater levels in the area.  It is  possible that this scenario could happen again during a drought of similar magnitude if  imported water supplies were reduced.  The SCVWD adopted level of service goals as part of its  2012 Water Supply and Infrastructure Master Plan effort, including the development of water  supplies designed to meet at least 100% of average annual water demand identified in the  SCVWD 2010 UWMP during non‐drought years and at least 90 percent of average annual water  demand in drought years17.   This goal is a countywide goal and includes Palo Alto demands.     Cost  The SCVWD levies a groundwater extraction fee, or “pump tax”, on each acre‐foot of water that  is pumped from the groundwater basin.  The charge varies depending on a variety of factors,  including pumpage type (agriculture vs. municipal) and geographic location in the County.    Historically, the cost of groundwater (including the pump tax and the O&M cost of operating a  well) has been comparable to the cost of SFPUC supplies.  However, due to the increasing cost  of SFPUC water due to the WSIP, the cost to pump groundwater is projected to be less than the  cost of SFPUC supplies (Figure 8).   While the costs of SCVWD groundwater and treated water                                                         16 In summer 2012, staff met with SCVWD representatives to discuss the current limitation and the process to  increase/remove the limitation. 17 SCVWD Board Agenda Item 4.2, June 12, 2012  Page 21    are also projected to rise over the next decade due to capital investment requirements, the  cost of SCVWD water is likely to be less than SFPUC supplies.  The vertical lines above the  groundwater and treated water bars in Figure 8 represent the SCVWD high cost scenario, and  reveal that the cost differential between SFFPUC and SCVWD water remains significant even  under a SCVWD high cost scenario.     Figure 8: Projected SFPUC and SCVWD18 Water Rates  0 200 400 600 800 1000 1200 1400 1600 1800 2000 2200 2400 $/ A c r e ‐Fo o t Fiscal Year SFPUC vs. SCVWD SCVWD ‐ Groundwater Rate SCVWD Treated Water rate SFPUC Treated Water Rate ForecastActual     Water Quality  The water quality of the groundwater is considered good, though historically the groundwater  in the area has had iron (Fe), manganese (Mn) and Total Dissolved Solids (TDS) levels that  exceed secondary19 drinking water quality standards.      All potable water scenarios must comply with water quality requirements.  Staff currently  samples the wells based on the conditions outlined in the California Department of Public  Health (CDPH) permit(s).   The City may be out of compliance with secondary standards on a                                                         18 The SCVWD sets groundwater and treated water rates according to water pricing policies and SCVWD Board  direction.  In general, treated water charges are slightly higher than groundwater charges to account for O&M  costs to pump groundwater.  However, at times, the SCVWD may adjust rates to encourage use of groundwater  instead of treated water, or vice versa depending on the health of the underground water supplies.  19 Primary drinking water quality standards apply to contaminants that affect health while secondary standards  apply to those constituents that affect aesthetics, taste and odor.  Page 22    short term basis during emergencies, but for full‐time operation the City must be in compliance  with secondary standards or apply for a waiver20.  The waiver requires justification and includes  a community survey to establish support for the provision of water that exceeds secondary  standards.  The community survey must demonstrate a high degree of acceptance to justify the  waiver.      Key water quality parameters for groundwater, water from the SFPUC and treated water from  the SCVWD are compared in Table 4.  All of these sources meet primary drinking water  standards.  The table lists several secondary standards and a sampling of other parameters.    Table 4: Water Quality Parameters for Various Water Sources  Water Source Fe  (ppm)  Mn  (ppm)  TDS  (ppm)  Sodium  (ppm)  Hardness  (as CaCo3)  (ppm)  Turbidity  (NTU)  Drinking Water Quality Standard .300 .050 500 N/A N/A 5  SFPUC Water (1) ND ND 132 13.5 57 0.16  SCVWD Treated Water (2) ND ND 209 37 90 0.07  Groundwater (3) 0.25‐1.3 0.13‐0.31 440‐710 75‐170 ‐ 0.33‐7.7 (1) SFPUC values are average water quality values reported by the SFPUC in its 2011 Water Quality Report (2) Average values from 2011 SCVWD Rinconada Water Treatment Plant Water Quality Data Summary  (3) Based on the City’s well water testing records  ND = non detect    Normal Year Groundwater Supplies  Several treatment and blending options for the wells were evaluated in 2000 in the “Long Term  Water Supply Study”:      1. Blend water with SFPUC water to meet water quality limits for manganese and iron. The  blended water will meet regulatory limits, but will have TDS levels 2‐3 times the current  level in the distribution system21.   2. Provide iron and manganese treatment at each well site.   The water will likely not  exceed TDS limits, but it will be 5‐7 times the current levels in the distribution system.  3. Provide iron and manganese treatment at each well site and blend with SFPUC supplies  to reduce the well water TDS levels.  4. Provide iron, manganese and TDS treatment at each well site.  The treated water at the  injection point will be comparable to SFPUC supplies.    The estimated present dollar cost of each option is provided in Table 5 for information  purposes.  The treatment options focus on the costs to address the elevated iron, manganese  and TDS levels under several water quality scenarios.                                                            20 Title 17 Code of Regulations, Chapter 64449.2 21 Upon completion of the Emergency Water Supply and Storage project, the El Camino Well water can be blended  with SFPUC water in the new 2.5 million gallon storage tank in El Camino Park in a similar manner to Option 1.  Page 23      Table 5: Well Treatment Alternative Preliminary Cost Analysis   Treatment Options22   1 (blend) 2 (treat for  Fe, Mn)  3 (treat for Fe,  Mn and blend)  4 (treat for Fe,  Mn and TDS)  Capital Cost23 (Total for 5 wells) $8.5‐10.8 M $8.5‐10.8 M $9.4 ‐ 11.8 M $37.4 ‐ 46.7 M  Well production  Acre feet per year 6300 12800 2500 12800  % of total Potable Demands 50% 100% 25% 100%   Water Quality24  TDS (500 ppm) 130‐300 440‐700 120 120  Manganese (<0.05 ppm) 0.04‐0.05 <0.05 <0.01 <0.05  Iron (<0.3 ppm) 0.08‐0.3 <0.3 0.05‐0.06 <0.3    The new and refurbished wells are being constructed with chlorine disinfection injection points  and the capability to accommodate fluoride and other needed chemical injection points.  The  use of the wells on a regular basis will require a detailed operational plan and some or all of the  sites will need modifications to accommodate backup power, chemical storage, and any  equipment associated with the selected treatment option.  Not all sites will have the space to  accommodate these additional requirements.  These and other additional operating and capital  costs will need to be incorporated as part of a future detailed cost‐benefit analysis.    The various treatment options will generate waste streams with elevated levels of iron,  manganese, TDS, and chemical residuals used in the treatment process.  It is unknown if this  can be discharged to the storm drain system.  Options to address this issue include onsite  treatment facilities at each site or discharging the raw waste stream to the wastewater  collection system for delivery to the Palo Alto RWQCP25.  In addition to these unknown costs,  there may be several challenges that may need to be addressed related to wastewater  constituent changes from the RWQCP.      Dry Year Groundwater Supplies  The City’s new well and reservoir at El Camino Park is currently being configured to blend with  SFPUC supplies so the El Camino Well can be relied upon to provide groundwater during a  drought up to the 1500 AFY limitation.   As a result of blending, the water will meet all  secondary water quality standards, but will be of lesser quality when compared to SFPUC  supplies.   To bring the water quality to a level comparable to SFPUC supplies, the City will need  to install Iron, Manganese and TDS filtration at the new El Camino well site.                                                         22 Costs are only those costs incurred by Water Utility.  Customer costs, including water softening or filtration  devices will be additional costs borne by individual customers 23 All costs were adjusted from the estimates in the 2000 study to provide a likely cost range in 2012 dollars. 24 Manganese and Iron have single consumer acceptance contaminant levels, while TDS is a consumer acceptance  contaminant level range (recommended = 500; short term= 1000 and upper limit = 1500) 25 Discharges to the wastewater collection system for treatment at the RWQCP have associated costs that are not  included in the preliminary cost estimates.  Page 24      Long Term Reliability  The wells are an important resource during a drought and could be an important resource to  serve a portion of the normal year potable needs in the City.  With the current 1500 AFY dry  year groundwater extraction limitation, there is little risk any dry year pumping program could  result in significant impacts to the groundwater basin26.     Since SCVWD manages the groundwater in Santa Clara County, any plans to increase Palo Alto’s  groundwater pumping would need to be discussed with the SCVWD.    Emergency Robustness  The City’s wells are being maintained to provide emergency service during a catastrophic  interruption of SFPUC supplies.  If the portfolio changes in the future such that groundwater  becomes part of the normal year supply, emergency preparedness will need to be evaluated  further to ensure the resource can perform under various scenarios.  Such an increase could  result in the need for the SCVWD to construct recharge facilities to ensure that the county’s  groundwater supplies are properly maintained.  If imported water supplies are required to be  delivered to the recharge facilities, those supplies need to be identified.    Environmental impacts  The use of the wells to meet dry year needs is currently permitted subject to a pumping  limitation of 1500 AF per year.  A significant increase to this limitation could require  supplemental environmental review.   Staff anticipates issues such as sustainable yield, dry year  availability, subsidence risk, saltwater intrusion, dewatering of local creeks and contaminated  plume migration, would be considered in such an environmental analysis.    Sensitivity to Regulations  An area of concern is future State and Federal water quality regulations for potable water.   Changes in regulations could make the groundwater supply less attractive and more expensive  due to additional treatment.  This becomes less of an issue depending on the level of treatment  that is chosen.                                                             26 The 1500 AFY limitation is a CEQA derived mitigation measure that has undergone the public review process.  Page 25    VIII. SCVWD Treated Water  Besides being the manager of groundwater in Santa Clara County, the SCVWD also produces  and delivers treated drinking water to water retail agencies in the county.  Long‐term plans of  the SCVWD include extending the treated water pipeline from its current terminus at Foothill  Expressway and Miramonte Road to a Palo Alto connection point at Foothills Expressway and  Arastradero Road (a distance of about 4.5 miles).  The SCVWD calls this extension the “West  Pipeline Extension”.  However, the project would only be constructed if the City requested  water supply from the SCVWD and signed a treated water contract.    Background  In 1999, the City sent a letter to the SCVWD advising it that information was needed to analyze  the City’s option to connect to the SCVWD treated water West Pipeline.  The SCVWD responded  with an estimated cost for the extension of the West Pipeline that would have to be fully borne  by Palo Alto.  In February 2002, Palo Alto and four other county retailers requested that the  SCVWD conduct a feasibility study of a West Pipeline extension from both a supply perspective  and the additional reliability of having an additional interconnection with the SFPUC system.   The SCVWD prepared a report on extending the West Pipeline, entitled: “Santa Clara Valley  Water District’s West Pipeline Extension Conceptual Evaluation Final Report”27.  The report  evaluated an extension of the existing SCVWD West Pipeline to enable an interconnection of  the Palo Alto and SCVWD systems at Page Mill turnout28.  A map of the potential project is  provided in Figure 9.                                                              27 The City of Palo Alto participated in the preparation of the 2012 Water Supply and Infrastructure Master Plan  (WSIMP).  As part of that process, staff requested the SCVWD include the West Pipeline extension for project  consideration.  The SCVWD noted in the Final 2012 WSIMP that the project is not recommended in the WSIMP  because it does not contribute to long‐term supply reliability.  However, the SCVWD stated that it would be  considered during a planned Infrastructure Reliability Master Plan. 28 The SFPUC and the SCVWD have an emergency interconnection near Milpitas that could theoretically be used to  wheel water to Palo Alto.  Staff does not anticipate it will be feasible to wheel normal year supplies via the intertie,  but the use of the intertie during dry years may be possible.  However, in general the SCVWD system is more dry  year sensitive than the SFPUC system, so it is unclear whether supplies would be available to be wheeled to Palo  Alto via this mechanism.  Page 26    Figure 9: West Pipeline Extension Map      Availability  If the City requested that the SCVWD extend the West Pipeline to serve the City, the terms of  the treated water contract would determine the availability and amount of water that would be  delivered during normal years.  The SCVWD has a diverse water supply portfolio, including State  Water Project, Central Valley Project, and local reservoirs.  SCVWD’s 2010 UWMP and its 2012  WSIMP indicated the SCVWD anticipates having adequate supplies to meet future needs until  2030 when minor deficits begin to materialize.  However, those projections do not assume any  treated water deliveries to Palo Alto.  In addition, there is no guarantee that the water will be  available during dry years.      Cost  SCVWD’s West Pipeline Extension Report provided detailed cost estimates for several pipeline  configurations, which are summarized in Table 6.  Both scenarios require a new parallel pipeline  from Rinconada Water Treatment plant to the current terminus of the West Pipeline at  Miramonte Road.  From there, a new pipeline would be constructed to Page Mill Road.  The  cost differential between the two scenarios is largely attributed to different pipe sizing  requirements and an intertie pump station.    Page 27    Table 6: SCVWD Treated Water Connection Summary Costs29  Alternative Assumptions Total Cost  of  Alternative  ($million)  Cost to  SFPUC  ($million) Cost to  New  Retailers  ($million)  Rate  Increase  to SCVWD  Retailers  ($/AF)  Parallel  and  Extension   Existing treated water  contractors and new retailers  share cost of parallel pipe   New retailers pay for extension  94‐114 N/A Palo Alto:  44‐67  Purissima  Hills: 5‐9  $5‐8  Parallel,  Extension  and  Intertie   Existing treated water  contractors and new retailers  share cost of parallel pipe   SFPUC pays for half of  incremental cost of intertie   Existing and new retailers share  cost of extension and half of  incremental cost of intertie  127‐154 18‐22 Palo Alto:  23‐41  Purissima  Hills: 4‐10  Stanford  University:  4‐8  Pump Tax:  11‐14  Treated  Water: 15‐ 22    The report concluded that the City and neighboring jurisdictions must pay for the costs of  constructing the extension via a “take or pay” contract, which is a common payment  mechanism for all agencies in the county that purchase SCVWD treated water.  The amount of  the take or pay contract is determined by the amortized construction costs divided by the  annual treated water rate.  For example, if Palo Alto’s obligation for a West Pipeline extension  was $30 million with an annual cost of $2 million (using an interest rate of 3%/year for a 20‐ year financing period), and the treated water rate was $634.60 per AF30, then Palo Alto would  be required to purchase about 3,150 AF/year, or about 25% of the City’s water usage in FY  2012.    During the term of the contract, the City would have limited ability to adjust its annual water  purchase from the SCVWD.  There are several agencies in Santa Clara County that purchase  both SCVWD and SFPUC treated water, and they are subject to minimum “take or pay” contract  provisions by both providers.  The City would receive similar treatment.  The cost estimates in  Table 6 do not account for any distribution system improvements that may be required to  configure Palo Alto’s distribution system to receive SCVWD treated water.    Recently, the City conducted an evaluation of property tax collected by SCVWD from Palo Alto  property owners.  It is not uncommon for water districts to rely wholly, or in part, on property  related taxes to build water systems or for surplus capacity for future users.  The SCVWD has  historically relied on taxes to some degree to purchase imported water and fund local                                                         29 Cost of additional supply is not included in project cost.  Costs have been escalated 3‐5% from 2003 dollars to  provide a representation of potential costs ranges. 30 This is SCVWD’s treated water rate for FY 2013  Page 28    groundwater and treated water programs, and continues to do so.  The results of the property  tax evaluation revealed Palo Alto taxpayers have contributed to the development of the SCVWD  water supply, distribution and treatment system, and will likely continue to do so in the future.   This information could be helpful in determining an equitable sharing of the capital costs of an  extension to serve areas of the county that have historically supported the SCVWD system.    Water Quality  See Table 4 in the groundwater section for a comparison of certain water quality parameters of  SCVWD’s treated water, SFPUC water, and groundwater.    Carollo Engineers evaluated the SCVWD treated water line in the Long Term Supply Study and  provided information on the issues of blending SCVWD supplies with SFPUC supplies.  In  general, SFPUC supplies are of superior quality to SCVWD supplies, but there were several  specific issues that were identified in the previous study.  If there is interest in moving forward  with an interconnection with the SCVWD system, additional analysis will need to be performed  to determine if the previous issues still remain, and what additional issues have arisen.  On the  positive side, the SCVWD’s recent decision to include fluoridation at their treatment plants  removes the need to provide fluoridation at the interconnection points to ensure the water  supply complies with the municipal code.  In a similar manner, the SFPUC has completed the  transition to chloramine from chlorine for residual disinfection.  This removes some water  quality related issues associated with blending treated water from different sources that use  different disinfectants.  However, there may be other issues related to water quality that could  require the two water supplies to be isolated in the distribution system.  This would result in  water from difference sources being provided to customers depending on their location in the  distribution system.    Long Term Reliability  It is likely the SCVWD has little surplus imported water to allocate to Palo Alto, so the details of  a potential supply arrangement will need to be evaluated further.  During the drought in the  late 1980’s, SCVWD supplies from both the state and federal sources were significantly  reduced.  It is not clear what level of drought protection would be provided, though the recent  level of service commitment by the SCVWD indicates that there would be no greater than 10%  reduction in supplies during dry years.    Emergency Robustness   In 2003, the SCVWD initiated the Water Utility Infrastructure Reliability Project to determine  the current reliability of its water supply infrastructure (pipes, pump stations, treatment plants)  and to appropriately balance level of service with cost. The project measured the baseline  performance of critical SCVWD facilities in emergency events and identified system  vulnerabilities.  The study concluded that the SCVWD water supply system could suffer up to a  60‐day outage if a major event, such as a 7.9 magnitude earthquake on the San Andreas Fault,  Page 29    were to occur.  Less severe hazards, such as other earthquakes, flooding and regional power  outages had less of an impact on the SCVWD, with outage times ranging from one to 45 days.     The level of service goal identified for the Infrastructure Reliability Project was “Potable water  service at average winter flow rates available to a minimum of one turnout per retailer within  seven days, with periodic one day interruptions for repairs.”  In order to meet this level of  service goal, the project identified a recommended portfolio to mitigate the risks.  The SCVWD  has been implementing the recommended portfolio.  The project is expected to reduce the  post‐earthquake outage period from 45‐60 days to 7‐14 days.     In 2007, the SCVWD created a stockpile of emergency pipeline repair materials including large  diameter spare pipe, internal pipeline joint seals, valves, and appurtenances.  The stockpile  marks a significant increase in reliability of the SCVWD water supply system, as it helps to  reduce outage time following a large earthquake from approximately 60 to 30 days.  The  SCVWD still needs to complete several other emergency planning projects to meet the goal of  reducing outage time to 30 days.  These include developing a post‐disaster recovery plan,  developing mutual aid agreements or expanding participation in the California Water/  Wastewater Agency Response Network , setting up contractor, welder, and equipment rental  company retainer agreements, and setting up post‐earthquake pipeline inspection teams.  The  addition of groundwater wells and line valves to the SCVWD system will further reduce outage  time following a large earthquake from 30 days to 14 days.  The wells will allow the SCVWD to  convey supplies from the groundwater basin to the treated water pipelines following a hazard  event to meet the project’s level of service goal.  The line valves will allow the SCVWD to isolate  damaged portions of pipelines.      If the West Pipeline was extended to provide potable water service to Palo Alto, the City would  have one connection to the SCVWD system31, compared to 5 connections to the SFPUC system.   It is unclear what level of reliability would be provided in the event of catastrophic event.  The  SFPUC level of service goal following an earthquake is to provide for average wintertime  demands with delivery to 70% of the turnouts within 24 hours following a major earthquake.   The SCVWD level of service goal provides for service resumption to one turnout within 7 days of  a similar event, though the location of a Palo Alto interconnection at the end of the treated  water line may be a weak point, so it is unclear if there will be adequate supplies or system  pressures to provide meaningful service.  In addition, the SCVWD plans on extracting  groundwater for raw water delivery to the treatment plants and on to the retailers during an  emergency.  The Emergency Water Supply and Storage project will serve this purpose for Palo  Alto.                                                            31 There may be additional connection options to a new SCVWD treated water pipeline, such as a new extension to  the existing Arastradero SFPUC turnout.  However, the cost of additional connections was not included in the initial  cost estimate and would likely be borne by the City.  Additional connections may allow increased use of and more  efficient distribution of SCVWD treated water, though they may not provide any additional reliability assurances.  Page 30    Environmental Impacts  A West Pipeline extension will require CEQA review.  The SCVWD would be the lead agency for  the CEQA process.    Sensitivity to Regulations  The SCVWD imports water from both the State and Federal water projects, and is vulnerable to  actions that impact those sources.  Since publication of the 2003 WIRP, federal and state water  deliveries have been reduced on several occasions due to Delta related issues.   The Bay Delta  Conservation Plan is currently underway to address the co‐equal goals of water supply  reliability and environmental sustainability.  The most likely water conveyance solution will be a  tunnel underneath the Delta from an intake on the Sacramento River to the South Delta  Diversion/Pumping facilities.  Such a facility will take decades to build and the costs will likely be  borne by State and Federal water contractors, including the SCVWD.     Page 31    IX. Recycled Water  The City of Palo Alto operates the Regional Water Quality Control Plant (RWQCP), a wastewater  treatment plant, for the East Palo Alto Sanitary District, Los Altos, Los Altos Hills, Mountain  View, Palo Alto, and Stanford University.  Approximately 220,000 people live in the RWQCP  service area.  Of the total plant flow, about 60 per cent is estimated to come from residences,  10 per cent from industries, and 30 per cent from commercial businesses and institutions.    In 1992, the City and the other RWQCP partners completed a Water Reclamation Master Plan  (Master Plan).  The Master Plan identified a three stage implementation for recycled water in in  the RWQCP service area.    In 1995, City Council certified the Final Program Environmental Impact Report (PEIR) for the  Master Plan projects.  At the same time, Council decided not to pursue any of the  recommended expansion stages of a water recycling system as the cost could not be justified.   Council adopted a water recycling policy, which included continuation of the existing programs  and monitoring of conditions that would trigger an evaluation of the Master Plan.  The Water  Recycling Policy described five conditions that would trigger evaluation of the Master Plan  projects:    1) Changes in the RWQCP discharge requirements  2) Increased mass loading to the RWQCP  3) Requests from partner agencies or other local agencies  4) Availability of federal or other funds  5) Water supply issues:  a. Water shortages  b. Legislative or Regulatory Initiatives  c. Advanced treatment for potable reuse.    Since the Master Plan, the City prepared a recycled water survey in 2006 and a Facility Plan in  2009 for a project to deliver recycled water to the Stanford Research Park.  The Facility Plan had  four goals:    1) Define recycled water alternatives and identify a recommended project;  2) Develop a realistic funding strategy  3) Develop an implementation strategy ; and  4) Provide a basis for any future state and federal grant requests for the Project.    Since completion of the Facility Plan, the City initiated the environmental review process for the  project and is currently working on an Environmental Impact Report (EIR) for the project.  The  City is also focusing on outside funding sources to improve the project economics.    The Facility Plan provided a comprehensive overview of the proposed recycled water project to  serve the Stanford Research Park.  The project would connect to the recently completed  Page 32    recycled water transmission line serving the Mountain View area and extend through the City  to serve the target area.  A schematic of the proposed project including water demands and  pipe sizes is provided in Figure 10.    Figure 10: Proposed Recycled Water Project        Availability  The average dry weather flow capacity of the RWQCP is 38 MGD.  The average treated  wastewater discharge to the San Francisco Bay is approximately 22 MGD.  In theory, all of this  could be captured for reuse.  Several RWQCP partners, including Palo Alto, have a contractual  entitlement to the treated wastewater in proportion to the amount of wastewater that is sent  to the RWQCP32.  Palo Alto’s FY 2011 flow share to the plant was approximately 39.2%, or 8.624                                                          32 Personal communication with James Allen, RWQCP Plant Manager, November 2012  Page 33    MGD.  However, operational constraints and plant configuration limit the recycled water  production capability from the RWQCP.    The RWQCP collaborates with the partners to ensure needed capital improvements for future  recycled water expansion goals are incorporated into long range plans.  Considering the  RWQCP’s primary role to provide wastewater treatment services for the partners and to ensure  the RWQCP meets all associated regulatory and permit limitations, the necessary  improvements to accommodate a substantial increase in recycled water deliveries are not a  priority for the foreseeable future.  In the meantime, the RWQCP can deliver up to 4.5 MGD of  recycled water via coagulation and filtration through a multi‐layered filter and disinfection  process.  This additionally treated effluent meets California Department of Health Services Title  22 requirements for “unrestricted reuse”.  The new ultraviolet (UV) disinfection banks can add  6 MGD of recycled water production (8 MGD with an extra bank).  The RWQCP plans to use UV  as backup to the filtration/chlorination recycled water treatment train.   Future plans include  consolidating the systems into a 10.5 MGD recycled water facility, but this would require some  modifications in plant piping and storage tanks to get bottlenecks out of the system.      In constructing the project to extend the recycled water distribution system to serve the City of  Mountain View, the CPAU Water Fund paid $1 million and committed to pay an additional $1  million connection fee in the event the project to serve the Stanford Research Park was built.   By virtue of this arrangement, the CPAU Water Fund has secured capacity on the pipeline for  future use.   The RWQCP cannot currently meet projected recycled water demands under peak  conditions, and additional pumping capacity and possibly storage is needed to accommodate all  project users.  Palo Alto’s recycled water project capital costs include the cost of retrofitting the  RWQCP pump station to accommodate incremental recycled water deliveries to serve the  Stanford Research Park.       Page 34    The RWQCP has had a robust recycled water program for many years, including a substantial  amount for RWQCP onsite needs and irrigation at Greer Park, the Duck Pond and the Palo Alto  Municipal Golf Course.   As shown in Figure 11, the RWWCP uses about 0.5 MGD annually  (about 560 AFY) for irrigation around the plant as well as some cleaning and treatment  processes.   Greer Park and the Duck Pond have each used about 0.04 MGD (45 AFY) on average  over the past five years while the Palo Alto Municipal Golf Course has used about 0.2 MGD (230  AFY) on average over the past five years.    The 2009 Facility Plan identified about 0.8 MGD of new recycled water usage for the project to  expand the recycled water distribution system.  The project would primarily serve the Stanford  Research Park area and the bulk (90%) of the recycled water would be used for irrigation  purposes.    Figure 11:  Palo Alto Existing Recycled Water Uses for FY 2004‐FY 2012         Page 35    Cost  The Facility Plan included a detailed cost plan to build the project (Table 7).  The gross project  cost is approximately $33 million, though this does not include potential outside funding  sources that could lower the project cost.    Table 7: Recycled Water Gross Cost Estimate 1,2      The cost estimates in Table 7 were developed for 2009 Facility Plan using March 2008 dollars  and will need to be updated to reflect current capital and O&M costs.  Based on the 2008 data,  the recycled water cost is approximately $2,700/AF, compared to an SFPUC cost of $1260/AF  (2013) to $2240/AF (2020).  However, these cost estimates do not reflect several grant and low  interest funding programs that the City has been pursuing that will help lower the unit cost of  the recycled water to a more competitive level with SFPUC costs.  These funding options are  listed below:    1. Title 16 ‐ The Bureau of Reclamation's water reclamation and reuse program is  authorized by the Reclamation Wastewater and Groundwater Study and Facilities Act of  1992 (Title XVI of Public Law 102‐575).  The City of Palo Alto is a member of the Bay Area  Recycled Water Coalition, a group of regional recycled water projects that collaborate to  pursue federal funding for recycled water projects.  In order to receive federal funding,  all projects must receive federal authorization.  The City is currently seeking  authorization in the House of Representatives for a federal award of $8.25 million (H.R.  3910).  Obtaining authorization is a first step and subsequent steps include submittal of  Page 36    appropriation requests until the full authorized amount is received.  While authorization  provides a degree of certainty on a grant award, receipt of the full grant amount will  depend on annual appropriations and the federal political process.    2. Proposition 84 through IRWMP – The City is pursuing Proposition 84 grant funds  through the Bay Area Integrated Regional Water Management Plan.  The BAIRWMP  project list was recently updated and the City will have the option to submit funding  requests during future funding rounds.    3. State Revolving Fund Low Interest Loan – The City can apply for low interest  construction loans through the State Water Resources Control Board State Revolving  Fund (SRF) program.  The program provides 20 year loans with an interest rate equal to  half of the most recent General Obligation bond interest rate.  The most recent SRF  interest rate is 1.7%, though the historical rate is typically in the 2‐2.5% range.  SRF  loans have several attractive features, including a payment plan that commences 1 year  after construction and the avoidance of bond issuance costs.    The Title 16 and SRF loan programs represent the best State and Federal funding opportunities  for the project at this time.  The City’s recycled water project is on the SRF project list, and staff  does not anticipate that obtaining an SRF loan will be problematic.  However, obtaining Title 16  authorization for the project will be critical to making the project economically viable.  An SRF  loan and an $8.25 million federal grant would improve project economics such that recycled  water would become competitive with SFPUC potable water within 4‐6 years.    The City’s recycled water project was identified in BAWSCA’s Long‐term Regional Water Supply  Strategy as a project with near term development potential to meet future water supply needs.   Inclusion in the BAWSCA report does not change the project, but it does position the project for  innovative funding opportunities with another BAWSCA agency in exchange for some  equivalent benefit.  Such a partnership could be combined with State and Federal funding  sources to further improve project economics.    Water Quality  The recycled water from the RWQCP meets Title 22 requirements for unrestricted reuse.  The  main purpose of the Palo Alto recycled water project is to offset the use of high quality  imported SFPUC water for irrigation and cooling purposes.  A major challenge for the project is  acceptance by the landscape community of using recycled water for irrigation purposes.   Certain landscapes are particularly vulnerable to the higher salinity that is present in recycled  water, especially those areas with poor drainage and clay soils.    The RWQCP and the plant partners are undertaking efforts to address the elevated salinity  levels in the recycled water by establishing the Salinity Reduction Policy and evaluating the  wastewater collection system for areas where elevated salinity levels indicate Inflow and  Infiltration may be an issue.  For example, the City of Mountain View is currently spending $3‐4  Page 37    million to line a sewer trunk line that has indications of saline water intrusion.  This large  project may yield a significant salinity reduction when complete in February 2013.    Long Term Reliability  Recycled water is one of the most reliable new water supply sources.  As previously mentioned,  CPAU has paid for a future connection to the pipeline that extends from the RWQCP to serve  Mountain View, which has a maximum capacity of 21 MGD.  With the addition of the UV banks,  the recycled water production train could provide up to 10.5 MGD of recycled water.  As it is  local, it is more reliable than imported supplies, which rely on lengthy networks of pipes, pumps  and storage facilities.  In droughts or other water shortage situations, landscape water use is  normally targeted for the largest reductions, but recycled water use would not be subject to  such reductions.      Additional recycled water use will increase the City’s allocations of SFPUC water in drought  times.  Since the drought allocation formula is based on both a seasonal component and overall  water use, increased use of recycled water would provide a double benefit since it lowers  potable water use and also reduces the City’s potable usage during the peak irrigation season.   While it is difficult to assess future drought allocations since much depends on the actions of  other agencies, staff estimates the Stanford Research Park recycled water project could reduce  the dry year cutback by 10‐20%.    Emergency Robustness   Recycled water will be used for irrigation purposes and, to a lesser extent, cooling.  During a  catastrophic emergency, CPAU will focus on operation of the emergency wells and the potable  distribution system to ensure potable requirements and fire flows are maintained.  The RWQCP  will also focus its efforts on returning the RWQCP to normal operations.  Recycled water does  not provide additional emergency preparedness improvements over the current situation.    Environmental Impacts  The City has been preparing the requisite National Environmental Policy Act (NEPA) and CEQA  documents for the project.  The environmental review process has taken longer than  anticipated, largely due to additional study of the use of recycled water on plants in areas of  poor drainage and clay soils.      Sensitivity to Regulations  The recycled water supply is sensitive to regulations, but these can have both positive and  negative impacts due to the unique nature of the recycled water supply.  The RWQCP is subject  to numerous regulatory requirements related to treated wastewater discharges to San  Francisco Bay.  The use of recycled water is recognized as one method to reduce discharges to  the Bay and assists the RWQCP in complying with these requirements.  For example, in March  2012, the Regional Water Board issued a Water Code Section 13267 Technical Report Order to  Page 38    Bay Area wastewater dischargers, including the RWQCP, requiring submittal of information on  nutrients in wastewater discharges (nitrogen and phosphorus).  This information will be  compiled over the next few years and will likely result in the development of future water  quality objectives for the San Francisco Bay estuary.  An increase in recycled water use would  decrease the total nitrogen and phosphorus discharge to the Bay.   As the regulatory  environment for wastewater treatment plants becomes stricter, recycled water will become an  increasingly useful tool to assist wastewater treatment plants in complying with these new  regulations.    In February 2009, the State Water Resources Control Board adopted Resolution No. 2009‐0011,  which established a statewide Recycled Water Policy.  This policy encourages increased use of  recycled water and local storm water.  It also requires local water and wastewater entities,  together with local salt/nutrient contributing stakeholders to develop a Salt and Nutrient  Management Plan  for each groundwater basin in California.  The SCVWD is the lead agency for  this effort in Santa Clara County.  Together with the benchmarks in the SCVWD 2012 GWMP,  recycled water impacts on the groundwater basin will likely be monitored and subject to  regulation in the event there are observed changes.  X. Demand‐Side Management  Demand‐side management measures and Best Management Practices (BMPs) are measures  that can be implemented to conserve water.  The BMPs are included in the California Urban  Water Conservation Council (CUWCC) Memorandum of Understanding (MOU).  Water agencies  that became signatories to the MOU pledged to implement the BMPs and to report progress  biannually to CUWCC.       Since becoming a signatory to the MOU in 1991, the City has saved an estimated 4,135 AF of  water through conservation program implementation.  The 2010 UWMP contains the City’s  reports to the CUWCC, including compliance reports on the BMPs.  The 2010 UWMP included  an increased conservation program commitment, in large part driven by the requirements of SB  X7‐7.      Availability  BAWSCA has assisted its members in assessing the potential for water efficiency measures.  In  October 2008, as part of the adoption of the Water System Improvement Program (WSIP)  Program Environmental Impact Report, BAWSCA coordinated the completion of the Water  Conservation Implementation Plan, which provided a comprehensive analysis of cost effective  conservation measures to identify additional programs that could assist the BAWSCA agencies  in meeting future purchase limitations.  Results from the Water Conservation Implementation  Plan were also used to prepare the City’s 2010 UWMP.  Figure 12 shows the water conservation  goals Council adopted when it approved the 2010 UWMP.  Figure 12 also compares the  Page 39    conservation program commitment in the 2005 UWMP to the new commitments in the 2010  UWMP.    Figure 12: Water Conservation Savings Goals  0 500 1000 1500 2000 2500 2005 2010 2015 2020 2025 2030 Cu m u l a t i v e W a t e r S a v i n g s ( A c r e - F e e t ) Fiscal Year Actual Savings 2005-2010 Projected Savings from 2005 UWMP Projected Savings from 2010 UWMP 13% of Water  Demand 4% of Water Demand     The annual report to City Council on efficiency goals and achievements includes a summary for  water demand side management goals and achievements as illustrated in Table 8.      Table 8: Water Savings vs. Goals      Note that the savings goal increased threefold starting in FY 2011.  The increase is primarily a  result of legislative requirements (SB 7x‐7) that were captured in the 2010 UWMP.  This  aggressive goal is consistent with the City’s longstanding policy of providing cost effective  conservation programs to the community.  Staff will monitor conservation program  effectiveness and make necessary adjustments if it appears the current program is not meeting  established targets.  Page 40      Cost  It is the goal of the City to look for opportunities, innovative technologies, and cost effective  programs that best utilize the water conservation budget.  In FY 2011, the City dramatically  increased conservation program savings goals to meet the requirements of SB7x‐7.  The 2010  UWMP contains a detailed analysis of the current suite of conservation measures that are  offered by the City.  For each program, the benefit/cost ratio from the Total Resource Cost  (TRC) perspective is shown.    The TRC cost‐effectiveness test compares the total cost of  implementing a measure, regardless of who pays.  The costs include the cost of the device, any  installation costs, and the implementation costs of the program (advertising, tracking,  performance monitoring, rebate processing, etc.).  The benefits include the avoided costs of  water purchases.  The Water Utility assesses each measure in terms of financial impact to the  utility, which includes rebate costs as well as any other administrative costs borne by the Water  Utility.  The water savings summary through 2030 is provided in Table 9, including cost to the  utility.    Table 9: Conservation Program Costs33  2015 2020 2025 2030 Total Savings (Acre‐feet) 672 560 168 448 Total Wastewater Savings (Acre‐feet) 403 314 67 157 Total Outdoor Savings (Acre‐feet) 269 246 101 291 Utility Implementation Cost ($2010) $754,058 $370,843 $364,762 $387,604 Cost/Acre‐feet $1,122 $662 $2,171 $865     Table 9 illustrates that the aggregate conservation program is cost effective when compared to  SFPUC supply alternatives.       As the cost of SFPUC water increases, many conservation programs become more cost  effective, though the Water Utility adjusts conservation programs depending on several factors,  including program penetration, community preferences and the TRC.  Despite the very  aggressive targets in the 2010 UWMP, it may be possible to further increase conservation  program utilization to achieve additional savings.     Water Quality  Demand side measures do not present any water quality issues.                                                           33 The large increase in cost per acre foot in 2025 reflects regular captured savings less a drop off of savings from  those measures initiated in the 2012‐2020 time frame that begin to reach maturity.  Water agencies offer rebates  to make it more attractive for customers to install more efficient, and potentially costlier, measures.  At some  point in the future the measure reaches the end of its useful life and must be replaced.  For some measures, the  models assume the consumer will only have the choice of the more efficient model in the future and therefore no  rebate is needed anymore.  Absent a rebate, the Water Utility does not account for the savings anymore.  Page 41    Long Term Reliability  Staff forecasts and tracks DSM program effectiveness, but the ultimate effectiveness for  different programs varies substantially depending on many factors, including individual  behavioral patterns.  Much research has gone into evaluating the reliability of DSM, and some  of that research could be useful to the City in future efforts to plan and evaluate program  effectiveness.  Due to the large differential between water demand and the City’s Individual  Supply Guarantee, there is no pressing need to strictly monitor DSM program effectiveness like  there may be for an agency that is at risk of exceeding its Individual Supply Guarantee    Water efficiency during a drought is a more complicated issue.  One issue is the concept of  “demand hardening”, which is the assumed loss of demand elasticity during a drought that  results from water conservation programs implemented before the drought.  In other words,  the community may have little flexibility to reduce demand further if conservation programs  have been truly effective.  At the same time, there are certain DSM measures that are not  suitable during normal years that can be implemented during dry years and achieve desired  savings (i.e ‐ steep rate increases, irrigation restrictions).    Emergency Robustness   The 2010 UWMP contains a summary of demand side options that can be implemented under  various scenarios (Section 7 – Water Shortage Contingency Plan).  During a catastrophic  interruption of SFPUC supplies, the City will immediately initiate emergency supply options to  meet potable demands and fireflow requirements.  At the same time, the City will begin  informational outreach programs to inform the community that emergency conditions are in  effect and water consumption behavioral changes are required (i.e no irrigation).       For dry year scenarios, the City will implement informational outreach programs, incentive  based demand‐side management programs, and water audits.  In addition, rate schedules may  be modified, as appropriate, to reflect the water shortage conditions.   Due to the  SFPUC/BAWSCA drought allocation formula, conservation programs provide a benefit in  reducing dry year cutback requirements.  Conservation programs that specifically target  irrigation demands will provide an additional benefit because of the seasonal component of the  drought allocation formula.    Environmental Impacts  For the most part, demand side measures do not present any environmental issues.  Measures  that specifically target landscape conversions or efficiency changes have occasionally been the  subject of concern by tree advocacy groups who are concerned about impacts on trees due to  decreased landscape watering.  The City includes information on proper tree maintenance for  those customers converting to drought resistant landscapes.     Page 42    Sensitivity to Regulations  Demand side measures are not limited by any regulations.  However, additional requirements  to implement measures may be proposed, or compliance with certain efficiency standards (e.g.  per capita water use) may be required, especially if seeking State or Federal grant or loan  assistance for a project such as the recycled water project.  XI. Individual Supply Guarantee Sale  Availability  The City currently purchases approximately 12 MGD of potable water from the SFPUC and has  an Individual Supply Guarantee (ISG), of 17.07 MGD.  A sale of surplus ISG could generate  income for a variety of potential purposes.   Over the past several years there has been  increased interest in an ISG transaction, but the mechanism and value of the ISG has been  difficult to establish, and this has hindered movement on this issue.      The City’s current water use is approximately 12 MGD, and the recent 2010 UWMP forecasted  the City’s water use would increase slightly in the next few years, and then remain flat around  13.6 MGD through 2030.  In the event the City transferred 1‐2 MGD of its ISG to another party,  recent forecasts do not anticipate this will impact the City’s ability to meet normal year potable  demands.      The SFPUC/BAWSCA (Tier II) drought formula is based on the weighted average of two  components, the smaller of which is the ISG34.  This is beneficial to the City since current  consumption is well below the City’s ISG.  An ISG transfer would reduce that benefit and result  in an increased dry year reduction requirement by the City.  At the same time, this aspect of the  role of the ISG in the drought formula would be viewed favorably by a purchasing entity as it  would be acquiring normal year supply and improving its dry year allocation.    There are several possible uses for the funds from an ISG transaction, including increasing dry  year supply reliability.  Examples of potential projects that could reduce the dry year supply  deficiency include retrofitting the City’s wells to provide high quality groundwater, arranging a  dry year water transfer arrangement that could be wheeled via the SFPUC system, or providing  the funds necessary to complete the recycled water project, which is a “drought‐proof” water  supply resource.      Cost  In May 2010, the Purissima Hills Water District indicated an interest in purchasing 0.5 MGD of  the City’s ISG for a one‐time payment of $1 million.  The City declined the offer, citing several                                                         34 It is important to emphasize the Tier II formula expires in 2018, unless extended by mutual agreement of the  Wholesale customers.   It is possible the successor agreement to the current Tier II formula could be quite  different, including a larger or smaller role for the ISG.  Page 43    policy issues that needed resolution prior to any action to initiate an ISG transaction.  With  completion of the Tier II drought allocation process and the Interim Supply Limitation allocation  process, the major policy obstacles have been addressed.     In September 2012, the City of Brisbane executed a term sheet with the Oakdale Irrigation  District to transfer water to Brisbane.  The transaction will require additional agreements with  the Modesto Irrigation District and the SFPUC as intermediate parties.  As is the case with  PHWD, Brisbane’s water use is close to its ISG and it needs additional supplies to meet  anticipated needs.  The term sheet is a preliminary step, but it provides a starting point to  establish a proxy value for an ISG transaction.  The term sheet contemplates a sale of up to  2,400 AFY, with a price of $500/AF for any delivered water and a price of $100 for any water  not delivered (i.e, the difference between 2,400 AF and the delivered quantity).  After five  years, Brisbane must notify Oakdale Irrigation District how much water will be taken during the  remainder of the agreement.  All of that water is paid for at $500/AF, regardless of whether or  not it is actually taken.   If the City were to execute an agreement similar to the  Brisbane/Oakdale transaction, a 2 MGD transfer might generate revenues of $224,000 to $1.1  million per year for the first five years, followed by up to $1.1 million per year for the duration  of the transaction.  Of course, such a transfer would also reduce the City’s ISG from 17.07 MGD  to 15.07 MGD.    Water Quality  A water transfer does not present any water quality issues.    Long Term Reliability  A 2 MGD water transfer would reduce the City’s ISG from 17.07 MGD to 15.07 MGD.  The City’s  current normal year water use is well below 15.07 MGD, and recent forecasts indicate that the  City’s usage will exceed 15.07 MGD for the foreseeable future.  For dry years, a reduction in the  City’s ISG will result in an increased water reduction requirement.  For dry years, the Tier II  drought allocation formula has an ISG component so a reduction in ISG will negatively impact  the City’s allocation during a drought.  Staff estimates a 2 MGD sale would require an additional  5‐7% dry year cutback from the City or could increase reliance on groundwater.  A thorough  evaluation of such a sale is necessary to provide a more detailed assessment.    Emergency Robustness   A nominal ISG transfer would not impact the City’s access to SFPUC supplies following a  catastrophic interruption of SFPUC supplies.    Environmental Impacts  Staff anticipates that the receiving party will initiate any required environmental review under  CEQA.    Page 44    Sensitivity to Regulations  An ISG transaction is subject to Section 3.04 of the WSA.  The SFPUC review is limited to  determining if the proposed transfer complies with the Raker Act and whether the affected  facilities in the Regional Water System have sufficient capacity to accommodate delivery of the  increased amount of water to the proposed transferee.  Section 3.04(a) of the WSA also  specifies the City may “transfer a portion….to one or more other Wholesale Customers...”, thus  indicating an ISG transaction will likely be limited to another Wholesale Customer, or a third  party that plans on receiving the water within the service territory of another Wholesale  Customer.  Attachment B Draft Requirements for Submittal of a Determination of the effects of groundwater pumping on nearby buildings, infrastructure, trees, or landscaping. Required information to be submitted in a report prepared by a qualified professional, to include following:  Describe alternative construction methods considered by the owner/applicant and explain why dewatering is proposed for the project.  Submit the following information: o Depth to groundwater, maximum depth of excavation (including utilities, pits, shafts, etc.) and proposed maximum depth of dewatering wells/pumping. o Description of dewatering technique, including: location of dewatering wells, size and anticipated flow from each pump. Include a schematic diagram showing pipe and pump sizes and locations and sizes of all tanks, fill station, pipe route to nearest storm drain inlet (including flexible and rigid pipe locations), and all street and sidewalk impacts including trenching, sawcuts, and asphalt patching between project site and storm drain inlet. o Anticipated dewatering flow rate and total dewatering duration. o Controls to be utilized (e.g., settling tank, turbidity curtain, etc.) o Location of anticipated discharge including final receiving water (Creek name or Bay) o All wells and other dewatering sites within a 400 foot radius (roughly one City block) of the property that may interact with dewatering activity, using information available from the City. State or show the exact location of these dewatering sites. o Determine the radius of influence (i.e. extent of cone of depression) from each dewatering well as a function of time, based on local soil and groundwater conditions. Prepare a map and cross sections of the cone(s) of depression. State whether it is reasonably likely that the proposed dewatering will cause effects (including settlement or movement) on off-site structures or infrastructure, including the right or way, easements, and utilities within public utility easements. State whether it is reasonably likely that the proposed dewatering will reduce the amount of water taken up by any vegetation or trees to a level that will affect the health or viability of the vegetation or trees. Utilize an Urban Forestry Sub Consultant (certified arborist) to verify any such effects on trees.  To the extent that the qualified professional states that off-site effects are reasonably likely to occur, identify and implement avoidance measures to minimize the type and severity of those effects. Avoidance measures are also to be employed to the extent practical to minimize the PUBLIC WORKS P.O. Box 10250 Palo Alto, CA 94303 650.329.6951 January 2016 Attachment B flow rate and duration of the pumping, even when off-site effects are not specifically identified. Avoidance measures may include, for example: reducing well count, well depth, well location, pumping rate, and/or duration of pumping; supplemental irrigation of trees or vegetation, soil amendment, or other plant protection methods recommended by a certified arborist; alternative dewatering or construction methods.  Develop a monitoring plan to assess any actual effects on vegetation, trees, structures and infrastructure.  The geotechnical study and description and extent of the cone of depression must be stamped by a California licensed Geotechnical Engineer and submitted to the City. This report will be made available for public review. Attachment C: Correspondence fo ... "T M11~ '5~1\-o // \?1.1L1... -ao-&eL- I would like to clarify that savepaloaltosgroundwater.org is NOT against building residential basements. Basement construction presents many potential problems but our focus remains on dewatering and the treatment of community groundwater as a vital community resource; not as construction waste. 1/ 4 /1(p The Policy and Services Committee voted unanimously to send the issue of dewatering to the full City Council for discussion. The Department of Public Works will present a 3 tiered approach including formulation of a site specific plan for any property issued a dewatering permit. We ask the City Council to direct Staff to include in their recommendations the following: 1. All community groundwater removed during construction shall be redirected and I or reused; the Site Specific Plan shall describe how the pumped water will be used and/ or the method of replacement into the aquifer. Directing ground water into the storm drain is no longer acceptable. 2. All extracted groundwater shall be metered; this will provide, for the first time, an accurate measurement of the amount of pumped groundwater. Palo Alto can use this information to establish a database of extracted groundwater which will be useful for many purposes. 3. During dewatering, the amount of permitted groundwater extraction shall not exceed a volume equivalent to water covering the lot to a depth of 5 (five) feet. Installation of monitoring wells near and further from the construction site, as well as making this information easily available for public review should help monitor the effects on the water table, and should remain in place for a period of time long enough to estabHsh recovery of the water table following pumping. 4. The dewatering process shall be limited to 1 month .. Best construction praCtices, specifically having all contractors and subcontractors sequentially scheduled, should reduce excessive ,, dewatering. Significant daily fines, similar to those for sedimentation discharge, should be assessed when dewatering exceeds allowed time. This would help put in place incentives for using best construction practices. 5. A basement design, which does not impede the flow of water through the surrounding soils especially during normal or exceptional rainfall, shall be part of all site specific plans. The basement must not present a flood or subsidence danger to surrounding homes. In addition, we request the City Council apply the same Planning and Review requirements to all basement construction requiring dewatering as would apply to a 2 story home. Application of the FAR, and limiting basement depth, as previously discussed, should be considered. Members of Savepaloaltosgroundwater.org look forward to continuing our work with the Council and Staff to address the issues we discussed this evening. Thank you, Rita Vrhel Draft guideline for the maximum permissible quantity of water to be removed by dewatering (for residential basements) Save Palo Alto’s Groundwater Current Practice For a typical 15 foot deep dewatering for a 2500 square ft. basement on an 8,000 square foot lot, and assuming that 80% is dirt and the other 20% (0.2) extractable groundwater, the maximum amount of water attributable to the lot to be pumped would be 8,000 ft2 x 15 ft x 0.2 = 24,000 ft3. The City estimates the typical amount of water pumped per basement to be 1.2 million ft3. Therefore, at most, 24,000 / 1,200,000 x 100% = 2% of the water is from the property being dewatered. This corresponds to water 150 feet deep over the entire property! Obviously, the remaining 98% is from surrounding properties. How is this fair to surrounding homeowners and to the greater community at any time, and especially in a time of drought and water restrictions? Proposed Requirement The guideline for limiting the amount of water removed during dewatering to five (5) feet per square foot of lot, i.e. a maximum of 40,000 cubic feet (300,000 gallons) from a 8,000 square foot lot was developed from two considerations: 1) Sustainability. The amount of rainfall on a lot is about 1.25 feet per year times the area of the lot. Of this, Todd Engineers estimated that 5 – 10% (0.0625 – 0.125 feet times the area) enters the shallow aquifer, and then potentially the deeper aquifer levels. The remainder either runs off, evaporates or is taken up by plants. Therefore, 5 feet of water depth corresponds to 4 years of (normal) rainfall or 40 to 80 years of absorption by the aquifer of rainfall from the specific property. For 15 dewatering projects, the amount of water pumped would correspond to groundwater accumulation from 600 – 1200 residences for an entire normal year. 2) Reducing groundwater withdrawn from surrounding properties. As noted above, the amount of water under a property can be estimated by the product of the area of the property, the distance that the water table is lowered and the effective porosity of the soils. The effective soils provide an estimate of the amount of water that will flow out of soils under gravity. The values range widely but for clays, the effective porosity of clay ranges from 0.01 – 0.18, (http://web.ead.anl.gov/resrad/datacoll/porosity.htm). For a basement that lowers the water table from 7 feet to 15 feet under the property, and 0.18 porosity (the high estimate), the amount of water from the property would be (15 – 7) x 0.18 ft = 1.44 feet of water covering the entire property. Permitting withdrawl of 5 feet of water per square foot means that at least (5-1.44)/5 = 71% of the water would come from surrounding properties. . In cases where the water table is lowered less, or the soils are less porous, a larger fraction of the water would come from surrounding properties. For example, if the water table was lowered 2 feet, and the same amount of water was pumped, then >90% of the water could come from surrounding properties. 0 CITY OF PALO ALTO Overview Guidelines for Dewatering During Basement Or Below Ground Garage Construction February 2016 On February 1, 2016, Palo Alto City Council strengthened requirements designed to minimize the pumping and discharge of groundwater from basement (or below ground garage) dewatering during construction. Pumping of groundwater after the completion of basement construction has not been permitted for over a decade. In recent years, concerns that construction dewatering may be wasting water, potentially damaging structures, trees and vegetation, and depleting or altering the flow of groundwater, have arisen. Therefore Palo Alto has added new requirements. Public Works only allows drawdown well dewatering of groundwater. Open pit dewatering of groundwater is disallowed. Open pit dewatering is allowed for rainwater that may accumulate at the bottom of an excavation, if water quality limits are met. Groundwater dewatering is only allowed from April through October due to inadequate capacity in the City's storm drain system. Open pit dewatering of rainwater is allowed throughout the year, but must meet water quality requirements. A geotechnical report must be submitted for the site (separate from the Geotechnical Study described below), and must list the highest anticipated groundwater level. Public Works recommends a piezometer to l ··;\ be installed in the soil boring. The contractor must determine the depth to groundwater immediately prior to excavation by using the piezometer or by drilling an exploratory hole if the deepest excavation will be within 3 feet of the highest anticipated groundwater level. If groundwater is found to be within 2 feet of the deepest excavation, a drawdown well dewatering system must be installed, or, alternatively, the contractor can excavate for the basement without a dewatering system in place and hope not to hit groundwater. However, if groundwater is hit, the contractor must immediately stop all work and must meet all of the following requirements prior to resuming work. Public Works may require water to be tested for contaminants prior to initial discharge and at interval during dewatering. If testing is required, the contractor must retain an independent testing firm to test the discharge water for the contaminants Public Works specifies and submit the results to Public Works. Below is a summary of the pre-existing requirements, with the recently adopted requirements included. The overall goal is to minimize the discharge of groundwater from basement construction dewatering. The requirements fall into four categories: 1) Fill stations are required so that others may fill water trucks or connect garden hoses for irrigation; 2) Use plans are required to demonstrate that the applicant/builder is arranging for use of as much of the pumped water as possible and minimizing storm drain discharge; 3) A Geotechnical Study is required (unless the owner/builder received the Planning Conditions of Approval, or submitted a Building Permit Application before January 14, 2016) to determine any potential effects and needed avoidance measures; and 4) Street Work/Dewatering permits are required (and are issued after requirements #1, #2 and #3 are completed). 1. Fill Station Requirements Fill Station requirements are explained in the attached "Fill Station Requirements" and are summarized in the check-list shown below: a) Locate the fill station box outside the fence to allow 24-hour per day access; I b) Provide 2 Yz" fire hose connection with a 25-foot ( minimum ) fire hose; c) Provide at least two hose bibs outside the fill station box for standard hose connections; d) Provide sufficient pressure to deliver 200 gallons per minute (gpm) in the fire hose and 10 gpm in the garden hose; e) Provide a "Water Filling Station" sign on the fill station box; f) Provide a "Non-Potable Discharge" sign on the discharge point; g) Supply log sheets, and a pen inside the box for truckers to show date and amount of filling; h) Provide a fill station box combination lock and give City the combination (617-3103); i) Provide sufficient flow meters and data loggers to determine both the water used through the fill station and the total water pumped from the ground; j) Protect against trip hazards with sidewalk bridges and appropriate signage as needed; k) Once water is in the tank, call Watershed Protection ( 650-329-2430/2122) for water quality testing; I) When Fill Station is ready, call Public Works Engineering Inspection (650-496-6929) for inspection; (Note: When the City determines that the site is too close to an area of ground water contamination, no fill station shall be provided.) ' ·.' 2. Use Plans A brief groundwater use plan must be prepared to show how the groundwater will be used to the extent practical. It shall be submitted with the Street Work/Dewatering Permit Application, and shall contain the following minimum provisions: a) Applicant distribution of City-provided door-hangers to advertise the availability of water; these are to be collected if still apparent after 24 hours. b) Applicant watering of on-site and neighboring vegetation, to the extent desired by owners; c) Applicant piping water to any nearby parks and schools as requested by City; d) Applicant trucking water one full-day per week to irrigation sites as directed by the City; e) Applicant using water on-site for dust suppression and other construction needs. 3. Geotechnical Study I Determination of Effects and Associated Avoidance Measures Conduct a Geotechnical Study to determine the radius of influence (i.e. extent of cone of depression) from each dewatering well as a function of time, based on local soil and groundwater conditions. All wells and other dewatering sites within a 400-foot radius (roughly one City block) of the property that may interact with dewatering activity, using information available from the City, shall be included in the City of Palo Alto (ID # 6700) City Council Staff Report Report Type: Informational Report Meeting Date: 4/11/2016 City of Palo Alto Page 1 Summary Title: Update on Recycled Water Planning Efforts and Groundwater Studies Title: Update on Recycled Water Planning Efforts and Groundwater Studies in partnership with Santa Clara Valley Water District From: City Manager Lead Department: Public Works Recommendation: This report is provided for information only and requires no Council action. Executive Summary The purpose of this report is to provide Council an overview of the advances being made to develop alternative water supplies, both regionally and in Palo Alto. Alternative water supplies include:  Recycled Water from wastewater plants like Palo Alto’s;  Purified Water from reverse osmosis plants like San Jose’s;  Increased groundwater use coupled with groundwater recharge;  Local rainwater/storm drain system harvesting;  Sub-regional wastewater “scalping” plants for small communities/districts; and  Individual building use of graywater and treated blackwater. Palo Alto is working through a variety of groups and committees to conduct planning for alternative water supplies. Key collaborators include Palo Alto’s five Partners in its Regional Water Quality Control Plant (RWQCP), the other recipients of San Francisco PUC (Hetch-Hetchy) water, and other agencies in Santa Clara and San Mateo Counties. An important next step is the execution of several contracts to explore the potential use of key alternative supplies. City of Palo Alto Page 2 The first such contract is a feasibility study on the installation of an advanced water purification system, such as reverse osmosis, at the RWQCP. The second would update the 1992 Recycled Water Master Plan by studying groundwater recharge potential for indirect potable reuse, further utilization of recycled water by more RWQCP Partners, connections with the Sunnyvale distribution system, and other potential recycled water activities. The Santa Clara Valley Water District would provide much of the funding for this work and help manage the various tasks. Background The RWQCP produces high quality recycled water which is a drought-proof, locally controlled, non-potable water supply. Recycled water will help reduce Palo Alto’s reliance on imported water supplies. The RWQCP currently produces recycled water in excess of the current demand; therefore staff is working to expand the recycled water demand and distribution system. As such, the City of Palo Alto certified an Environmental Impact Report on September 28, 2015, to expand recycled water through South Palo Alto to Stanford Research Park (CMR# 5962). This proposed expansion project is phase III of the 1992 Recycled Water Master Plan. Additionally, the Santa Clara Valley Water District is seeking alternative water supplies from local wastewater treatment plants. There are three wastewater treatment plants that discharge into San Francisco Bay within Santa Clara County: (1) San Jose/Santa Clara Regional Wastewater Facility (San Jose RWF), (2) City of Sunnyvale and (3) the RWQCP. The Water District already has partner agreements with San Jose RWF and the City of Sunnyvale. Recently the Water District approved a partner arrangement with the City of Palo Alto to fund eighty percent of the Advanced Water Purification System Feasibility Study Contract. The Feasibility Study will evaluate alternatives including treatment to reduce improve recycled water quality. As part of the effort to expand uses of recycled water, the City and Water District are developing a further understanding of the northwest county groundwater system to identify opportunities for enhanced groundwater recharge. Discussion For the past year staff have been working with the Santa Clara Valley Water District and the RWQCP partner agencies to research expanding recycled water use opportunities in Northwest Santa Clara County. The City is working on City of Palo Alto Page 3 updating the Recycled Water Master Plan to produce a strategic plan that will include the following information:  Advanced Water Purification System Feasibility Study  White paper on initial description of all water sources  White paper on satellite and onsite treatment and reuse of black water, grey water, and stormwater  Ongoing Palo Alto Potable Water Supply Resource Planning  Mountain View Recycled Water Distribution Expansion and potential Sunnyvale Tie-In  Palo Alto Recycled Water Phase III Expansion Project business plan development, preliminary design, and securing of outside funding  Northwest Santa Clara County Groundwater Study for Indirect Potable Reuse (IPR) Potential  Palo Alto RWQCP Partner Agencies Recycled Water Expansion In addition to the upcoming Recycled Water Strategic Plan, staff has been working on the following Recycled Water planning projects. Advanced Water Purification System Feasibility Study (contract in process) To expand the use of recycled water to include cooling towers and the irrigation of salt-sensitive landscaping, staff is working to reduce the total dissolved solids (TDS) concentration. Consequently, the City has partnered with the City of Mountain View and the Santa Clara Valley Water District to jointly fund a feasibility study for installation of an advanced water purification system (AWPS) at the RWQCP (CMR #6458). The AWPS would produce virtually TDS-free water which could be blended with the current recycled water to achieve a TDS concentration of 450 ± 50 parts per million (ppm). White Paper on Initial Description of all Water Sources At the 2015 Council Meeting approving of the Environmental Impact Report (EIR) for the Phase III Recycled Water Expansion, Council requested further information on water sources as they pertain to the City of Palo Alto. Attached is an initial description of all water sources (potable and non-potable) potentially available to the City of Palo Alto (Attachment A). Potable water refers to water that meets drinking water standards and is considered safe to drink; while non-potable water refers to water that does not meet drinking water standards and is considered City of Palo Alto Page 4 unsafe to drink. White Paper on Satellite and Onsite Treatment and Reuse City staff has been tracking satellite and onsite treatment systems and reuse. Staff will be collecting information on similar efforts regionally and nationally, including the development of standardized design criteria and regulations. Currently, in the RWQCP service area, there are a few facilities that have reused gray water and stormwater for irrigation purposes. Stanford is currently researching an onsite treatment system. Ongoing Palo Alto Potable Water Supply Resource Planning City staff is currently working on the Water Integrated Resources Plan (WIRP) that will discuss the variety of potable water supply resources and planning. The WIRP will include an assessment of alternative potable water supplies including the City’s current water supply source from the San Francisco Public Utilities Commission’s Region Water Supply System, groundwater, and treated water from the Santa Clara Valley Water District as well as demand-side management. Recycled water will be assessed both as a tool to reduce potable water demand and as a potential potable water supply through IPR and Direct Potable Reuse (DPR). The results of the groundwater study discussed below will be an important part of this analysis. All of these resources will be evaluated based on availability, cost, water quality, environmental impact and robustness in water emergencies and with respect to potential state regulations. Mountain View Recycled Water Distribution Expansion and Sunnyvale Tie-in Mountain View currently receives the majority of the recycled water produced at the RWQCP. Mountain View has hired a consultant to research expanding the recycled water distribution system within its city limits and is working with Sunnyvale for a potential recycled water intertie. The City of Sunnyvale is rebuilding their wastewater treatment plant and plans on treating the majority of their flow to purified water for future IPR. Therefore, their existing recycled water customers will need a new source of recycled water which will potentially be provided by the RWQCP via the Mountain View—Sunnyvale intertie. Palo Alto Recycled Water Phase III Expansion (RFP in process) The City is seeking a consultant to develop a business plan, preliminary design, and aid in securing funding for the Phase III Expansion project. This evaluation City of Palo Alto Page 5 will help Council decide on pursuing Phase III Expansion of the recycled water pipeline. The City has drafted interim Recycled Water Guidelines to help facilitate new recycled water customers who are on the existing recycled water line near the RWQCP. Northwest Santa Clara County Groundwater Study for Potential Indirect Potable Reuse (RFP in process) The purpose of the groundwater study is to compile baseline information on the current condition of aquifers in northwestern Santa Clara County and adjacent areas, including sources and quantities of recharge, groundwater pumping, and water quality. This information will be used to evaluate the feasibility of IPR of advanced treated recycled water and identify opportunities for increased groundwater utilization of recycled water. This study will also evaluate impacts to groundwater resources from potential pumping or recharge projects to ensure continued sustainable groundwater management. Palo Alto RWQCP Partner Agencies Recycled Water Expansion (RFP in process) City staff is seeking opportunities to expand recycled water within the RWQCP service area: East Palo Alto, Los Altos, Los Altos Hills, Mountain View, Stanford, and Palo Alto. The RWQCP’s NPDES permit requires the treatment plant to have a recycled water program. Current recycled water demands and distribution systems were identified in the Recycled Water Master Plan that was completed in 1992. Since 1992, prolonged drought and increased economic activity has opened up new potential demand for recycled water in partner cities, including potential groundwater recharge opportunities. Consequently, staff is pursuing a consultant to re-evaluate the current and projected recycled water demand in the RWQCP service area. Timeline Below is a tentative timeline for the recycled water projects:  Cost sharing agreements with the Santa Clara Valley Water District and City of Mountain View for the Advanced Water Purification System Feasibility Study – April 2016  Recycled waterpipeline expansion within East Palo Alto, Palo Alto and Mountain View – Construction expected to begin in 2016  Advanced Water Purification System Feasibility Study expected to be City of Palo Alto Page 6 completed by end of 2016  Recycled Water Strategic Planning and Groundwater Assessment contract expected to be approved in summer 2016; the following deliverables will be completed by December 2018: o Phase III Recycled Water Expansion Business Plan, Preliminary Design & Secured Funding Effort Report o IPR Feasibility Evaluation o Conceptual Groundwater Model o Northwest Santa Clara County Groundwater Study for Potential IPR Report o Recycled Water Strategic Plan Report o Funding Identification & Application(s) o Public Outreach Resource Impact The current recycled water program consists of five hard-piped City facilities and more than 60 permitted users of the recycled water truck fill station. The RWQCP is the wholesaler of recycled water within its service area. The City is currently negotiating private hard-piped recycled water customers along the existing distribution line,expanding recycled water into East Palo Alto and in South Palo Alto including Stanford Research Park.. City staff anticipate construction of the East Palo Alto recycled water expansion to commence in 2016; therefore, staff is needed to help manage future contractors. As mentioned previously the City is planning on managing larger recycled water planning contracts to improve the water quality, update recycled water strategic plan, and investigate the possibilty of indirect potable reuse to recharge groundwater. The City is currently negotiating with the Santa Clara Valley Water District that they will fund eighty percent of the Advanced Water Feasibilty Contract and the City is still negotiating how much the SCVWD will fund of the second contract that will update the recycled water strategic plan. The City currently does not have a dedicated staff person who works on recycled water. In order to expand the City’s Recycled Water Program, a new Senior Engineer is required for future tasks including:  Initiate and manage recycled water and water re-use consultant contracts  Prepare a new Strategic Recycled Water Plan to complement the 1992 Recycled Water Master Plan City of Palo Alto Page 7  Determine the need and timing for appropriate groundwater recharge and storage of purified water, based on modelling of the San Francisquito Creek cone  Determine best method of brine disposal and management to allow for the addition of advanced recycled water treatment processes to the RWQCP’s current treatment plant  Develop RWQCP regulations and guidelines for the use and management of recycled water and purified water  Serve as the principal point-of-contact for Partner Agencies to secure new or modified Recyled Water Service and determine amounts and timing of needs  Serve as Public Health and Water Board Compliance Officer for water re- use programs, including inspection programs and cross-connection prevention programs  Develop and manage Infrastrucutre Management System (IMS) for the Recycled Water wholesale water treatment and distribution system; track and manage system repairs and upgrades  Develop Nutrient Credits and Offsets for Recycled Water Program  Coordinate expanded water use and water quality reporting and monitoring with regulatory agencies, partner agencies, users, site supervisors, and customers. Manage expanded recycled water system maintenance and utility locating services.The new Senior Engineer position would be funded partially by the partner agences to the RWQCP, since it is a requirement in our discharge permit to have a recycled water program. Therefore Palo Alto will only fund one third of the Senior Engineer Position which costs approximately $220,000. The projects that the Senior Engineer will manage will also be funded through cost-sharing agreements with the SCVWD, grants and state revolving funds. Policy Implications Continuing the exploration of expanding recycled water is consistent with Council policy. The Recycled Water Program is consistent with the Council-adopted Water Integrated Resource Plan Guideline 3: “Actively participate in development of cost effective regional recycled water plans.” The project is consistent with Council direction to reduce imported water supplies and limit or reduce diversions from the Tuolomne River. City of Palo Alto Page 8 Council’s Sustainability Policy supports the development of recycled water, specifically in the Policy’s statement to “reduce resource use and pollution in a cost-effective manner while striving to protect and enhance the quality of the air, water, land and other natural resources.” The City’s Comprehensive Plan contains Natural Environment Goal N-4: Water resources are prudently managed to sustain plant and animal life, support urban activities and protect public health and safety. Specifically, Program N-26 addresses the use of recycled water: implement incentives for the use of drought- tolerant landscaping and recycled water for landscape irrigation. Environmental Review Environmental Impact Report for Phase III of the recycled water pipeline project was approved in September 2015. Future Environmental Review will be required if the expanded recycled water pipeline is constructed. City of Palo Alto | City Clerk's Office | 2/22/2017 11:56 AM 1 Brettle, Jessica From:Daniel Garber <dan@fgy-arch.com> Sent:Friday, February 17, 2017 6:42 PM To:Council, City Cc:Keith Bennett; Rita Vrhel; Esther Nigenda Subject:Broad Area v Localized Dewatering Attachments:170306 Broad Area v Localized Dewatering (6).pdf; Secant Wall .mp4 Dear Council Members- Attached is a pdf showing the conceptual differences between Broad Area Dewatering and Localized Dewatering strategies that utilize cutoff walls. Although there are several ways to create a cutoff wall, the mostly like one to be utilized in Palo Alto are cutoff walls made using the secant shoring technique. (Shoring is the term used to describe the holding back of the earth.) In this solution the cutoff wall is created by drilling a sequential series of holes to form a below grade wall. In this process, the earth isn’t removed in the drilling process, rather the earth is mixed with a weak cement or expansive clay to create the wall. I've recently had conversations with American Drilling's subcontractor Daedalus Engineering who designs the secant walls they build. I have learned that the only data that they need to design a secant wall that allows the dewatering of a localized area, is the same analysis of the soil borings that is contained in the standard geotech report that the City currently requires (not the "enhanced" geotech report the City is considering requiring for projects that use broad area dewatering methods). While the engineer is happy to receive as much information as they can get, they don't need, for example, additional CPTesting to design the secant wall. This is good news in that it returns the cost for doing a Geotech Report to support a localized dewatering strategy to what it is today. If monitoring the level of the groundwater is done, two additional costs are required. The first is for acquiring a permit from the County for a well (~400 $/well). The borings that the geotech does routinely do not require permits because they are capped right after the borings have been completed. The second cost is for measuring the level of the groundwater. This is done by hand (dropping a weighted measuring tape) or by sliding a piezometer into the well, either accomplishes the same thing. I’m expecting to do two projects this year that will utilize a secant cutoff wall. And I’ll be measuring the groundwater level to establish how effective localized dewatering strategies are in reducing groundwater extraction and what, if any, impacts cutoff walls have on groundwater flow. Depending on the outcomes of these learnings, the need to monitor the groundwater of future projects that utilize cutoff walls may not be necessary. As I reported at the PSC Meeting in December, I’m expecting that the additional cost to build a secant wall to be about 25 to 35% more than utilizing Broad Area Dewatering solutions. However, utilizing a secant wall strategy reduces this added cost by 1) being built in approximately half the time that building the shoring for Broad Area Dewatering requires, 2) it requires fewer trades to be involved in the excavation and shoring compared to what Broad Area Dewatering requires, and although it doesn't directly relate to cost it allows the homeowner to build a basement anytime during the year. The homeowner isn't restricted to just the non-rainy season to build because the City of Palo Alto | City Clerk's Office | 2/22/2017 11:56 AM 2 City's storm drain system isn't burdened by the large amounts of water that results from a project that utilizes Broad Area dewatering methods. Thus, localized dewatering strategies adds flexibility to a homeowner’s construction schedule, adds only a very small percent to the overall cost of any new house and importantly avoids removing millions of gallons of water from our underground aquifer. In addition to the attached pdf document, there is also a link to a small video of the actual soil mixing that is done to create a secant wall. FYI, I have shared this information with Public Works, in addition to you. best, -dan Daniel Garber, FAIA Fergus Garber Young Architects Conserving Palo Alto’s Ground Water Broad Area versus Localized Dewatering Strategies March 6, 2017 Daniel Garber Save Palo Alto’s Ground Water February 17, 2017 v6 The Potential Amount of Water that can be kept from going down the City Storm Drain System No discharge may be needed with percolation, trucking and other use February 17, 2017 v6 Save Palo Alto’s Ground Water Page 4 of 6 Secant Cutoff Wall Concept METHODOLOGY 1. Drill & Mix Concrete into Soil to Create Secant Wall in Place 2. Excavate to Water, Remove Water From Interior Only 3. Excavate to Basement & Scrape Secant Wall Flat 4. Pour Temp Slab & Waterproof 5.Pour Final Slab & Wall February 17, 2017 v6 Save Palo Alto’s Ground Water Page 5 of 6 February 17, 2017 v6 Save Palo Alto’s Ground Water Photos of Secant Cutoff Wall Construction Page 6 of 6 City of Palo Alto | City Clerk's Office | 2/22/2017 8:20 AM 1 Brettle, Jessica From:Rita Vrhel <ritavrhel@sbcglobal.net> Sent:Saturday, February 18, 2017 8:32 AM To:Keith Bennett; Daniel Garber; Council, City Cc:Esther Nigenda Subject:Re: Broad Area v Localized Dewatering Hi All.... thank you Dan... yes Keith please send as we want everyone to read the document. Rita C. Vrhel, RN, BSN, CCM Medical Case Management Phone: 650-325-2298 Fax: 650-326-9451 On Friday, February 17, 2017 8:26 PM, Keith Bennett <pagroundwater@luxsci.net> wrote: Dan, Thank you for this and sending it to Public Works as well. Should I forward it to Council Members' "personal" e-mail addresses. I recall that at least some Council members preferred using their personal addresses for "important" stuff. Keith On 2/17/2017 6:42 PM, Daniel Garber wrote: Dear Council Members- Attached is a pdf showing the conceptual differences between Broad Area Dewatering and Localized Dewatering strategies that utilize cutoff walls. Although there are several ways to create a cutoff wall, the mostly like one to be utilized in Palo Alto are cutoff walls made using the secant shoring technique. (Shoring is the term used to describe the holding back of the earth.) In this solution the cutoff wall is created by drilling a sequential series of holes to form a below grade wall. In this process, the earth isn’t removed in the drilling process, rather the earth is mixed with a weak cement or expansive clay to create the wall. -- Keith Bennett http://savepaloaltosgroundwater.org City of Palo Alto (ID # 7793) City Council Staff Report Report Type: Action Items Meeting Date: 3/7/2017 City of Palo Alto Page 1 Summary Title: Accessory Dwelling Units Ordinance Title: PUBLIC HEARING: Adoption of an Ordinance Amending Chapter 18 (Zoning) of the Palo Alto Municipal Code to Update Code Sections Regarding Accessory Dwelling Units. The Ordinance is Exempt from the California Environmental Quality Act (CEQA) per Sections 15061(b), 15301, 15303 and 15305 and was Recommended for Approval by the Planning & Transportation Commission on November 30, 2016 From: City Manager Lead Department: Planning and Community Environment Recommendation Staff recommends that the City Council adopt the attached draft ordinance (Attachment A) amending Palo Alto Municipal Code provisions regarding accessory dwelling units and finding the ordinance exempt from review under the California Environmental Quality Act. The Planning and Transportation Commission recommended adoption of the ordinance with some modifications on November 30, 2016, as explained further below. Executive Summary In October 2015, the City Council directed the Planning and Transportation (PTC) to review provisions of the Municipal Code related to Accessory Dwelling Units (ADU), which are also referred to as Second Dwelling Units or “granny units.” The Council requested that the Commission review the City’s regulations and recommend ways to increase ADU construction. Subsequent to the Council’s direction and two PTC study sessions, the State of California adopted three laws regarding ADUs and Junior ADUs (JADU) which became effective January 1, 2017: SB 1069, AB2299, and AB 2406. In response to these laws, staff forwarded a draft ordinance to the PTC that reflected the mandatory and some optional provisions of State law, while retaining many existing local provisions. The Commission generally endorsed these City of Palo Alto Page 2 changes and made other proposed refinements, including changing the existing minimum lot size requirement for ADUs from 35% of the minimum lot size to simply meeting minimum lot size requirement for the applicable zone. The attached draft ordinance reflects this PTC recommendation and also does the following:  Changes the terminology throughout the municipal code to use “accessory dwelling units” and “junior accessory units” rather than “second units,” to be consistent with Senate Bill 1069 and Assembly Bills 229 and 2406;  Repeals references throughout the municipal code addressing ADUs and consolidates these regulations into one new chapter ;  Adjusts parking and setback requirements to comply with the State laws;  Allows conversions of existing single family residences and accessory structures in the R-E and R-1 zones into ADUs and the creation of junior accessory dwelling units, which involve conversion of existing building space to a small living unit, without a minimum lot size requirement; and  Limits any single family residential lot to one accessory or junior accessory dwelling unit per parcel (and not one of each). The PTC also requested the City Council to consider directing staff to prepare a parking utilization study and also to prepare an ordinance to allow underground parking in residential neighborhoods. The PTC’s discussion and recommendation are discussed further below. Background In October 2015, the City Council, following a discussion of a Colleagues Memo (Attachment B), directed the Planning and Transportation Commission (PTC) to initiate discussions on ADUs and recommend ways to increase ADU construction. Palo Alto’s high housing cost, demand for a variety of housing types, and change in demographics with a rise in an aging population, prompted the City Council to seek opportunities to increase more affordable housing options for its residents. The City Council perceived ADUs as a potential solution to this problem. The City Council requested that the PTC provide recommendations to update City ordinances on ADUs to facilitate the following:  Increase opportunities to create more ADUs with minimum impact on community character while maintaining neighborhood design standards;  Consider steps to bring existing non-compliant ADUs into compliance; and  Any other relevant recommendations. City of Palo Alto Page 3 PTC Study Sessions Based on City Council direction, staff held two study sessions with the PTC. At the January 27, 2016 PTC Study Session, the PTC was provided with a brief history of Municipal Code changes made during the 2006 Zoning code update and the potential benefits and impacts of ADUs in Palo Alto. Members of the public stated that it was important to balance the impacts of second units in single family zoned areas, while others said it was important to increase second unit production to meet the community’s affordable housing needs. The PTC discussed the existing development standards and identified City regulations which can act as potential constraints in the construction of ADUs. The PTC also reviewed some of the common practices and regulations followed by some Bay Area cities. The following is the link to PTC staff report and meeting minutes of January 27, 2016 meeting. Staff Report: https://www.cityofpaloalto.org/civicax/filebank/documents/50714 Meeting Minutes: http://www.cityofpaloalto.org/civicax/filebank/documents/51618 At the second study session held on July 27, 2016, staff provided an update on the research that was requested by the PTC, including an analysis of the constraints posed by existing zoning regulations that discouraged construction of new second units. The PTC requested staff to gather information on impacts of ADU ordinance changes in cities that have updated their ordinance. The PTC also requested staff to perform a sensitivity analysis of the effects of lot size change, parking regulation change, and adjustment of permit fee regulations on ADU construction. The PTC directed staff to return with a draft ordinance to encourage ADU construction concurrently with the additional data that was requested. Following is the link to the second Study Session and meeting minutes. Staff Report: http://www.cityofpaloalto.org/civicax/filebank/documents/53216 Meeting Minutes: http://www.cityofpaloalto.org/civicax/filebank/documents/53622 State Legislation on ADUs Concurrent with the City’s efforts on ADUs, the State adopted two laws intended to further ease the regulatory burdens of existing local laws and remove barriers that have discouraged homeowners from constructing second units. In September 2016, Governor Jerry Brown signed the two bills which took effect on January 1, 2017. If a jurisdiction does not amend local codes in compliance with these bills, then State laws will supersede local laws. California Government Code Section 65852.2 (a.k.a. Chapter 1062 or Second-Unit Law) was enacted in 1982 and has been amended four times since then (1986, 1990, 1994 and 2002), City of Palo Alto Page 4 to encourage the creation of second-units while maintaining local flexibility for unique circumstances and conditions. The Second-Unit Law imposes standards intended to create greater flexibility to encourage construction while also requiring a ministerial process for the approval of such units. The 2002 update of the Second-Unit Law required all local agencies to review second-unit permit applications ministerially without discretionary review or a public hearing. The city’s current regulations comply with this State requirement. These new laws are intended to further this goal. A short summary of the two new bills is provided below. SB 1069 and AB 2299 SB 1069 and AB 2299 officially designated second dwelling units as Accessory Dwelling Units and amended the State government code accordingly. The two bills include amendments related to maximum unit size, parking, setbacks, and separation between the primary and the accessory dwelling unit. One of the most significant changes involves the conversion of existing structures to an ADU. In all single-family zones, cities are required to allow conversions of portions of existing residences or accessory structures to permit ADUs. The State preempts the local municipalities from using development standards, such as lot size, height and setbacks to prohibit such conversions. However, each lot will be limited to one such conversion because only one ADU or JADU would be allowed. The bills also include changes regarding application of building codes and utility connection fees or charges. This report focuses on changes required for the zoning code or Palo Alto Municipal Code Chapter 18. The changes related to utility fees and the building code will be addressed through a separate process. More information on SB 1069 and AB 2299 can be found through the following links: https://leginfo.legislature.ca.gov/faces/billCompareClient.xhtml?bill_id=201520160SB1069 https://leginfo.legislature.ca.gov/faces/billNavClient.xhtml?bill_id=201520160AB2299 AB 2406 - Junior Accessory Dwelling Units The State also adopted Assembly Bill 2406, to allow a different type of an accessory dwelling unit called a “junior accessory dwelling unit” (JADU). This bill added a new section on JADUs to the Government Code Section 65852.22. A JADU is defined as the conversion of an existing bedroom within a home containing a kitchenette and not exceeding 500 square feet. The bill authorizes a local agency to create an ordinance on JADUs in single-family residential zones. If a City chooses to allow JADUs, the bill requires the ordinance to include, among other things, standards for the creation of a JADU, processing regulations and occupancy requirements. The bill prohibits local ordinances from requiring, as a condition of granting a permit, water and sewer connection fees or additional parking requirements. On September 28, 2016, Governor City of Palo Alto Page 5 Brown signed this bill and it took effect immediately as an urgency statute. More information on AB 2406 is available here: https://leginfo.legislature.ca.gov/faces/billNavClient.xhtml?bill_id=201520160AB2406 Draft Ordinance To be in compliance with the State Laws, a draft ordinance was prepared that would bring the City’s Municipal Code into compliance with the new ADU legislations and allow JADUs as another type of ADU. The ordinance was then brought to the PTC for their recommendation on November 30, 2016. The draft ordinance in Attachment A has been amended to reflect the PTC’s input and to better address some of the somewhat confusing (and even contradictory) provisions of state law. Planning and Transportation Public Hearing At the formal action hearing, the PTC recommended that the City Council approve the proposed code amendments to Title 18 (zoning) of the Palo Alto Municipal Code to implement new State law requirements regarding ADUs and JADUs (5-1-1). The motion reflected staff’s recommendation with some amendments. There were eleven public speakers, including representatives from the League of Women Voters and the Sierra Club/Audubon Society. The speakers expressed a range of comments. Attachment C summarizes the comments made at the meeting; minutes of the meeting are available online at: http://www.cityofpaloalto.org/civicax/filebank/documents/55548. In general, the comments supported ADUs with some comments focused on minimizing potential impacts related to noise, privacy, parking, enforcement and potential loss of trees. The PTC had a detailed discussion regarding the proposed ordinance. They acknowledged that the State law changes prompted a change in process that necessitated a revised ordinance immediately. However, they also expressed that there were many issues that warranted further discussion per Council’s direction to explore increasing construction of ADUs. The PTC generally supported the proposed ordinance with a few amendments. With one exception (the PTC’s suggested rental term was not incorporated), as discussed in more detail below, the suggested amendments were incorporated into the attached draft ordinance to further ease constraints to ADU development. The amendments include the following: 1. Modify the minimum lot size requirement to allow legally conforming lot sizes in the R1 and R1-subdistricts to be eligible for an accessory dwelling unit. The current standard requires a lot be 35% greater than the minimum lot size. 2. Add to the Public Transit definition to include a 0.5 mile radius from bus stops with service of 15 minutes or better during both the morning evening peak periods. City of Palo Alto Page 6 3. Add additional development standard to Section 20 (18.42.040(a)(8)(vi)) for new or converted detached accessory dwelling units, there shall be no windows, doors, mechanical equipment, or venting or exhaust systems, located within six feet of a property line. This standard was introduced to address privacy-related concerns from ADUs. The PTC also requested the City Council to consider the following recommendations to examine more ways to encourage construction of ADUs. 1. Consider directing staff to prepare a parking study of residential neighborhoods to assess peak utilization and extend the no parking requirement for ADUs on those blocks with a street parking peak utilization under 50%. 2. Request the City Council to consider directing staff to prepare an ordinance to enable underground parking in residential neighborhoods. A more detailed discussion of the PTC hearing will be provided below, organized by topic. A short summary of the PTC’s discussion is also provided as Attachment C. The PTC also approved a motion to direct staff to consider a few minor revisions which will be discussed below. The staff report and the meeting minutes are attached and also available at: Staff Report: http://www.cityofpaloalto.org/civicax/filebank/documents/54902 http://www.cityofpaloalto.org/civicax/filebank/documents/55548 As a part of the public outreach, all three of the PTC meetings were noticed in a local paper at least ten days in advance. A project website was developed to solicit participation and public input. Staff has already received multiple requests for more information and valuable comments from this website. The website information has also been shared on City website and social media. (http://www.cityofpaloalto.org/gov/depts/pln/advance/accessory_dwelling_units_regulations_ update.asp) Discussion The proposed code amendments in the draft ordinance focus on the topics described below. Since the PTC’s discussion, staff has also made non-substantive changes for clarity. This discussion includes the purpose of the amendment and PTC comments. Please refer to the attached draft ordinance (Attachment A) for the specific language of the proposed code amendments. City of Palo Alto Page 7 Parking Requirements The new State laws reduce parking requirements for accessory dwelling units and eliminate them for certain conditions, particularly for units that are in existing structures and those near transit. The existing Municipal Code currently generally requires two parking spaces, of which one must be covered, for each new accessory dwelling unit. These spaces can be provided as tandem parking and within the required rear or side setbacks, however, nowhere in the City may parking, including tandem, occur within the front setback or closer than ten feet from the street side property line for corner lots. The following is the recommended proposal, as written in the draft ordinance, to relax parking requirements for ADUs, including the changes to meet the minimum parking requirements for ADUs as required by the State Law: A. Parking requirements for ADUs shall not exceed one parking space per unit or per bedroom, whichever is greater. B. Spaces may be provided as tandem parking, may be located on an existing driveway, and may be located in side and rear setbacks, but not in the front setback. For corner lots, parking may be located within the corner street side setback if located at least 10 feet from the property line. C. Notwithstanding the above, no parking requirements would be imposed on an ADU if any of the following instances are met: 1. The ADU is located within 0.75 miles of a Caltrain station or 0.5 miles of public transit, which includes a bus stop along a fixed route bus service with service intervals of 15 minutes or better during peak commute hours. 2. The ADU is located within a Residential Parking Program District. 3. The ADU is located within an architecturally and historically significant local, state or nationally designated historic district. 4. The SDU is part of the existing primary residence or an existing accessory structure. 5. When on-street parking permits are required but not offered to the occupant of the accessory dwelling unit. 6. When there is a car share vehicle located within one block of the accessory dwelling unit, where the car share vehicle is shall mean part of an established program intended to stay in a fixed location for at least 10 years and available to the public. D. When a garage, carport, or covered parking structure is demolished in conjunction with the construction of an accessory dwelling unit, any required replacement spaces may be located in any configuration on the same lot as the accessory dwelling unit, including, but not limited to, as covered spaces, uncovered spaces, or tandem spaces, City of Palo Alto Page 8 or by the use of mechanical automobile parking lifts. PTC Comments on Parking Requirements The PTC acknowledged that parking can be a significant barrier to the construction of ADUs and there was support for reducing parking requirements. The PTC discussed the impacts of reduced parking requirements for ADUs and felt that all areas of the City would not be similarly impacted. The PTC discussed the need to look at a parking utilization study of residential neighborhoods and suggested relaxing parking standards only in those neighborhoods with less than 50 percent street utilization during peak parking hours. The PTC questioned the definition of public transit for properties to qualify for parking reductions. Because Palo Alto is a major a transit hub served by regional rail as well as bus transit system, with three CalTrain stations and major intersecting bus lines, the PTC recommended to extend the radius of public transit from .5 miles to .75 miles radius from Cal train station. However, one Commissioner would only support this for the University Avenue station. They also recommended requiring no parking for those sites that are subject to Residential Permit Parking programs. Attachment D is a map that identifies eligible parcels located within 0.75 miles of Caltrain stations and 0.5 miles along major bus transit lines. The map has also identified Palo Alto’s designated historic neighborhoods and areas with existing and proposed Residential Permit Parking programs. As noted earlier, the PTC passed separate motion (i.e. not related to language in the ordinance) recommending that the City Council consider directing staff to prepare a parking study of residential neighborhoods to assess peak utilization and extend the no parking requirement for ADUs on those blocks with a street parking peak utilization under 50%. They also requested that the City Council to consider directing staff to prepare an ordinance to enable underground parking in residential neighborhoods. Setback Requirements One of the other major items addressed by the State legislation is the reduction of setback requirements for ADU garage conversions. Specifically, the State law stipulates that no setbacks are to be required for an existing garage that is converted to an ADU. This provision would only apply if the existing garage is not needed as required parking for the principal dwelling or if required parking is provided elsewhere on the property. State Law also permits construction of an above garage ADU with a maximum side and rear property setback of five feet. Palo Alto Municipal Code sections 18.12.070, 18.10.070 and 18.28.070 require a minimum rear setback of 20 feet and interior side yard setback of six to eight feet for all R-1, R-2 and RMD City of Palo Alto Page 9 zoned properties. For RE and OS districts the requirement is higher; 30 feet rear yard and 15 feet interior side yard setback. However, accessory structures (non-habitable), including garages are permitted within the rear and side setbacks, if located at least 75 feet from the front property line, located 20 feet from the street side property line and limited to one story. Accordingly, an existing one story detached garage located in the rear yard, sometimes located at the rear or side property lines, can be converted to an ADU, provided that replacement parking for the primary residence be provided elsewhere in compliance with the Municipal Code. The State provision to permit second-story ADUs above a detached garage with limited setbacks is not applicable because State law allows the City to regulate ADU height. The R-1 zoning district and its subdistricts have a height restriction of 17 feet for both attached and detached ADUs. While the Open Space OS and Residential Estate RE Zoning districts have taller maximum heights for ADUs (25 and 30 feet respectively), detached garages in all residential zoning districts can have a maximum height of one story. This would be applicable only if detached garages are located outside of setbacks. The following is the recommended language regarding setbacks proposed in the draft ordinance to meet the requirements of the State Laws: A. Accessory dwelling units shall comply with the underlying zoning district’s setbacks. B. No setback shall be required for an existing garage or an accessory structure in the R-E or R-1 zones that is converted to an ADU. C. In districts permitting second story ADUs, a setback of no more than five feet from the side and rear lot lines shall be required for an ADU constructed above a garage. PTC Comments on Setbacks Requirements Along with members of the community, Commissioners expressed concerns of privacy issues for ADU garage conversions for structures that are located near or on the rear or side property lines. Commissioners discussed including additional text language to strengthen privacy requirements including placement of windows, doors, mechanical equipment, or venting or exhaust systems when garage conversions to ADUs take place. Staff provided a development standard that would prohibit windows, doors, equipment, venting or exhaust systems from being placed within six feet of a property line for all new or converted ADUs, which the PTC supported and incorporated into their recommendation. City of Palo Alto Page 10 Commissioners also discussed daylight plane requirements in R-1 single family neighborhoods and if that can potentially act as a constraint to garage conversion of ADUs. A minority perspective of the Commission viewed street side setback requirement of 20 feet for corner lots could be too restrictive and act as a constraint in construction of ADUs. Maximum Unit Size Requirements The recent state law established a maximum size and the percentage an ADU may occupy of the existing living area. For attached ADUs the requirement is not to exceed 50% of existing living area, with maximum increase of 1,200 sf and for detached ADUs the size limitation is not to exceed 1,200 sf. The permitted ADU size in Palo Alto Municipal Code varies from 450 sf to 900 sf in all zones subject to overall floor area and lot coverage maximums of the district. The one exception is only in the R-2 zone for lots between 6,000 to 7,500 sf sizes where an ADU with a maximum size of 450 sf is allowed. The City’s current code is below the 1,200 sf maximum, staff proposes no change to the existing requirement. However, the additional requirement that an ADU may not occupy more than 50% of existing living space has been incorporated in Section 18.42.040(a)(7)(iii), to be consistent with State law. The following is recommended proposal regarding minimum unit size to meet the requirements of the State Laws: A. The maximum size of an attached ADU living area shall not exceed 450 square feet and shall not exceed 50% of the existing living area of the primary existing dwelling unit. The ADU and any covered parking shall be included in the total floor area for the site, but the covered parking area is not included in the maximum 450 square feet for attached unit. Any basement space used as an ADU or portion thereof shall be counted as floor area for the purpose of calculating the maximum size of the ADU. B. The maximum size of a detached ADU living area shall not exceed 900 square feet. The ADU and covered parking shall be included in the total floor area for the site, but the covered parking area is not included in the maximum 900 square feet for detached unit. Any basement space used as an ADU or portion thereof shall be counted as floor area for the purpose of calculating the maximum size of the ADU. For R-2 zoned lots of 6,000 square feet or greater, but less than 7,500 square feet, a detached ADU of 450 square feet or less is permitted. City of Palo Alto Page 11 PTC Comments on the Maximum Unit Size Requirements The PTC supported retention of the existing regulations on ADU size limits. One Commissioner suggested including a minimum size threshold for an ADU other than what is prescribed in the building code. It was suggested to include a minimum size of 250 square feet of livable space to maintain Health and Safety code regulations; however, this was not incorporated into the PTC motion. JADU Assembly Bill 2406 allows local jurisdictions to adopt an ordinance to permit JADUs. This is not a requirement, but an option, and was adopted by the State legislature after some communities found the addition of JADUs to be an effective way to add units without increasing the intensity of development (since existing building space is converted to create the unit). The draft ordinance would allow the construction of these smaller units as a way to increase the number of units with minimal impact on neighborhoods since JADUs would be created by converting a bedroom, be limited to 500 square feet and contained entirely within an existing single-family structure. JADUs would not be subject to a minimum lot size, and thus would be permitted in a larger number of properties; however, the ordinance specifies that a property would be allowed either one ADU or one JADU. At no point would a property be allowed more than two units regardless of lot size and other requirements. Permitting the construction of JADUs represents a significant policy shift. Currently, the Municipal Code only allows ADUs on parcels that are at least 35% larger than the minimum lot size. The suggested provision of JADUs would not only allow some form of second unit on all single family parcels, it would also not require any additional parking for these units. The thinking is that JADUs would not increase the occupant capacity of a home or impact infrastructure because it would not increase the size of the structure. PTC Comments on JADUs The PTC unanimously supported the inclusion of JADU requirements to the Palo Alto Municipal Code. It was agreed that JADUs would provide the much needed affordable housing. Since JADUs have fewer restrictions, such as no minimum lot size requirement or any parking requirement, they can provide an opportunity for seniors to age in place by generating income from rentals or by providing a living space for caregivers or family. City of Palo Alto Page 12 Minimum Lot Size Requirement The PTC viewed Palo Alto’s existing lot size requirement to be eligible to construct an ADU as the second most significant constraint after parking. Currently, the Municipal Code requires that a lot be at least 35% larger than the minimum lot size of the district. Following detailed discussion over three hearings, the PTC recommended that there should be no addition to the minimum parcel size requirement in the R-1 and R-1 subdistricts in order to maximize the numbers of parcels that would be eligible for ADUs. In other words, only substandard lots in the R-1 district would be excluded from having an ADU (as noted in the ordinance, State law requires the City to permit ADUs in existing buildings regardless of lot size, so a substandard lot could have an ADU or JADU if it is within an existing building). No changes to the minimum lot size was proposed for any of the other lots, including the RE Residential Estate zoning district. To get a better understanding of the potential number of eligible parcels that can accommodate ADUs, the PTC suggested staff to develop scenarios by lowering the existing minimum lot size requirement at 500 sf or five percent intervals, as shown in the Table 1 below. The PTC also suggested studying only those residential parcels on conforming lots with excess of 450 sf of remaining FAR. This would provide a more realistic estimate of the actual number of second units that can be built in future years. The analysis showed the increase in the number of parcels eligible for ADUs if the minimum requirement was lowered at five percent intervals. The table also consolidates all R-1 zone subdistricts together. Currently the City has 15,000+ residentially zoned lots, and approximately 8,680 parcels have 450 square feet or more of unused FAR and are not substandard lots. With the existing Municipal Code lot size requirement of 35 percent more than the minimum, only 2,466 parcels, or 2302 in the R-1 zones, qualify to be allowed an ADU. Table 1: Analysis of Increasing Parcels Eligible for ADUs by Reducing Minimum Lot Size Requirement at Five Percent Intervals Percentage over Minimum Lot Area Number of Qualifying Parcels (all R-1) Zones Number of Qualifying Parcels (R-2, RE, RMD and OS) Zones TOTAL ELIGIBLE PARCELS 35 % Over 2,302 164 2,466 30 % Over 2,703 113 2,816 25 % Over 3,218 152 3,370 20 % Over 3,732 163 3,895 City of Palo Alto Page 13 Percentage over Minimum Lot Area Number of Qualifying Parcels (all R-1) Zones Number of Qualifying Parcels (R-2, RE, RMD and OS) Zones TOTAL ELIGIBLE PARCELS 15 % Over 4,280 177 4,457 10 % Over 4,912 193 5,105 5 % Over 5,773 219 5,992 Total Number of Parcels 8,216 464 8,680 Source: City of Palo Alto Planning Department, December 2016 A reduction of in intervals of 5% would increase the number of eligible R-1 parcels between a low of 401 to a high of 3,471 lots. The removal of the minimum lot size would significantly increase the number of eligible parcels by 5,194 for a total of 8,216. Additional Recommendations on ADUs In addition to conforming to the requirements of the State laws, staff also recommended to PTC additional changes to remove development constraints and to minimize neighborhood impacts. These recommendations, reflected in the proposed ordinance, include: A. Clarification that only one ADU or JADU can be constructed on a lot; B. Elimination of current code’s 12 feet separation buffer between existing single family home and detached ADU, requiring compliance with the building code; C. Removal of requirement for design review for ADUs in the RMD (NP) Combining District to comply with State law D. Clarification that ADU may not be sold separately from the unit; E. Requirement that either ADU or single family home be owner occupied; and F. Requirement that ADU’s not be rented for periods of less than 30 days. PTC Comments on Additional Recommendations The PTC supported the additional ADU requirements proposed referenced above with the exception of minimum rental tenure of 30 days. The PTC, as well as members of the public, expressed concern about the potential of ADUs to be used as short term rentals. The majority of the Commissioners spoke in favor of requiring a minimum of 60 days of rental tenure to prevent the use of ADUs for short term rentals. They felt that this could help in achieving neighborhood stability and alleviate concerns of constant neighborhood turnover. However, there are provisions in state law (State Landlord-Tenant laws) and the City’s zoning ordinance City of Palo Alto Page 14 that distinguish between residential and non-residential (transitory) uses by using 30 days as the minimum standard. To maintain consistency with these provisions, staff has drafted the ordinance to reflect the 30 day minimum requirement. Additional PTC Concerns The PTC also identified and discussed other concerns they would like to be addressed in the future. With the exception of item 5, these items have not been included in the draft ADU Ordinance proposed for review. 1. Tree Protection: Some Commissioners expressed concern about the potential of the loss of trees due to the increase in ADU construction. Staff explained that the tree protection ordinance would apply to ADUs, the same as what currently applies to single family homes. 2. Street Side setback: The Commissioners discussed how street side setback requirement of 20 feet for corner lots may be too restrictive and could act as constraint in construction of ADUs. However, no proposals to modify the street side setback were made. 3. Incentives for ADUs: Commissioners suggested providing additional incentives to encourage construction of ADUs including waiving of ADU application fees, preparing pre-approved by right designs for ADUs and exploring options to include provisions of “Tiny Homes” in zoning regulations. 4. Kitchen Facilities: One commissioner suggested a minimum size be required for kitchen facilities. 5. Location of Entryways: The Commission directed staff to consider allowing an ADU to have the entrance face the same direction as the primary unit, i.e. facing the same lot line as the primary unit. The reason for this requirement is to ensure that a property with an ADU would still appear as a single family residential lot. Staff has proposed in the draft ordinance to permit entry ways to face the same lot line if the second entryway is located at the rear half of the lot. This will provide flexibility while still maintaining the appearance of one entry way along the front property line, consistent with the appearance of a single family neighborhood. 6. Enforcement of Ordinance and Absentee Owners: The PTC had expressed concerns about absentee owners and maintenance of properties. The proposed ordinance includes a new requirement that the property owner must reside in the primary unit or ADU. This new requirement would enable Code Enforcement staff to respond to concerns about absentee owners. The requirement for the owner to live onsite provides additional incentives for property maintenance. City of Palo Alto Page 15 Timeline/Next Steps The new State laws regarding ADU became effective on January 1, 2017 and apply to current and future ADU applications whether or not the City has updated its municipal code. Therefore, there is some urgency to make many of the code changes included in the draft ordinance as a way to avoid confusion. Nonetheless, there are a number of complex policy options to consider, and at this evening’s meeting, the City Council could choose to: 1. Adopt the proposed ordinance; or 2. Adopt the proposed ordinance with specific modifications; or 3. Continue their discussion to later date. Any provisions that go beyond the legal requirements of State law would become effective 31 days following the Council’s adoption (on second reading). Policy Implications The City’s Housing Element Goal H1 is “Ensure the preservation of the unique character of the city’s residential neighborhoods,” and Programs H1.1.2 and H3.3.5 encourage modifying existing second unit development standards in the Zoning Code, such as lowering the minimum lot size and allow for increased floor area, in order to facilitate the creation of additional SDUs while maintaining neighborhood character and increasing the City’s affordable housing supply. The City’s Comprehensive Plan emphasizes the importance of the City’s residential neighorhoods and the quality of life for residents. Policy L-13 of the Land Use and Community Design Element emphasizes the need to increase and maintain the diversity of the City’s housing stock and Program L-13 encourages City to create design prototypes and guidelines for second units ensuring compatability with rest of the single family neighborhoods. The proposed ordinance is generally consistent wih these Comprehensive Plan provisions and would advance housing element programs referenced above. Resource Impact Building permits would be required for new ADUs and JADUs and the associated building permit fees would be collected for the review/permitting process. The State laws preclude collection of hook-up fees for JADUs and limit the collection of fees for ADUs. Environmental Review The proposed ordinance change is exempt from the provisions of the California Environmental Quality Act (CEQA) pursuant to CEQA Guideline sections 15061(b)(3), 15301, 15303 and 15305 because it provides a comprehensive permitting scheme for units that are allowed under State City of Palo Alto Page 16 law. Any additional ADUs or JADUs that would be allowed under the ordinance (due to changes to minimum lot size requirements for example), would be subject to the development standards contained within the ordinance, which are intended to ensure compatibility with surrounding development. Attachments: Attachment A: Ordinance Amending Sections of Chapter 18 re: Accessory Dwelling Units (PDF) Attachment B: City Council Colleagues Memo on ADU (PDF) Attachment C: Summary of Nov 30 PTC Public Comments (PDF) Attachment D: ADU Parking Exemption Areas Map (PDF) Attachment E: SB 1069, AB 2299 and AB 2406 (PDF) Attachment F: November 30th PTC Staff Report with Attachments (PDF) Attachment G: PTC Meeting Minutes 11/30/2016 (PDF) Attachment H: Emails from Public (PDF) Not Yet Approved 161018 jb 0131553 1 December 1, 2016 895\04\2046589.1 1/24/2017 Ordinance No. ____ Ordinance of the Council of the City of Palo Alto Amending Chapter 18 (Zoning) of the Palo Alto Municipal Code to Implement New State Law Requirements Relating to Accessory Dwelling Units and Junior Accessory Dwelling Units and to Reorganize and Update City’s Existing Regulations The Council of the City of Palo Alto does ORDAIN as follows: SECTION 1. Findings and Declarations. The City Council finds and declares as follows: A. Housing in California is becoming increasingly unaffordable. The average California home currently costs about 2.5 times the national average home price and the monthly rent is 50% higher than the rest of the nation. Rent in San Francisco, San Jose, Oakland, and Los Angeles are among the top 10 most unaffordable in the nation. With rising population growth, California must not only provide housing but also ensure affordability. B. Despite a high median income in Palo Alto, nearly 30 percent of all households overpaid for their housing (more than 30 percent of their income) in 2010; C. It is estimated that 63 percent of extremely low income renter households and 75 percent of extremely low income owner households overpaid for housing in 2010. Of the estimated 1,520 low income households, 75 percent of renter households and 44 percent of homeowner households paid more than 30 percent of their income for housing. D. The Palo Alto City Council, recognizing the severity of the regional housing crisis, requested that the Planning and Transportation Commission review constraints affecting the production of second (accessory) dwelling units and recommend modifications to the City’s development standards. E. While existing law enables accessory dwellings as a source of housing, recent studies show that local standards like Palo Alto’s, perhaps unintentionally, prevent homeowners from building ADUs with standards like lot coverage, large set-backs, off-street parking, or costly construction requirements. F. In September 2016, Governor Brown signed into law Senate Bill 1069, Assembly Bill 2299 and Assembly Bill 2406 relating to the creation of accessory dwelling units (ADUs) and junior accessory dwelling units. G. These new bills were intended to address the housing crisis by easing regulatory barriers for homeowners who choose to build affordable housing in their own backyards. H. This ordinance is adopted to comply with these new State mandates regarding ADUs and junior accessory dwelling units, and to reduce regulatory constraints affecting their production. I. As required by these new State mandates, the Palo Alto City Council hereby finds that no residential parking is permitted anywhere in the City within front setbacks or closer than ten feet from the street side setback of a corner lot. Not Yet Approved 161018 jb 0131553 2 December 1, 2016 895\04\2046589.1 1/24/2017 SECTION 2. Section 18.04.030 (Definitions) of Chapter 18.04 (Definitions) of Title 18 (Zoning) is amended to read as follows: 18.04.030 Definitions . . . (4) “Accessory dwelling unit” means an attached or a detached residential dwelling unit which provides complete independent living facilities for one or more persons. It shall include permanent provisions for living, sleeping, eating, cooking, and sanitation on the same parcel as the single-family dwelling is situated. An accessory dwelling unit also includes the following: a. An efficiency unit, as defined in Section 17958.1 of the Health and Safety Code. b. A manufactured home, as defined in Section 18007 of the Health and Safety Code. In some instances this Code uses the term second dwelling unit interchangeably with accessory dwelling unit. (46.5) “Dwelling unit, second” means a separate and complete dwelling unit, other than and subordinate to the main dwelling unit, whether a part of the same structure or detached, on the same residential lot. (74.5) “Junior accessory dwelling unit” means a unit that is no more than 500 square feet in size and contained entirely within an existing single-family structure. A junior accessory dwelling unit may include separate sanitation facilities, or may share sanitation facilities with the existing structure. (132) “Single-family use” means the use of a site for only one dwelling unit and, where permitted, an accessory second dwelling unit or a junior accessory dwelling unit. . . . SECTION 3. In Section 18.10.010 (a) substitute the term “accessory dwelling unit(s)” for “second dwelling unit(s)”. SECTION 4. Section 18.10.030 Table 1 and Footnote (2) are amended as follows: TABLE 1 PERMITTED AND CONDITIONALLY PERMITTED LOW-DENSITY RESIDENTIAL USES [P = Permitted Use -- CUP = Conditional Use Permit Required] R-E R-2 RMD Subject to Regulations in: ACCESSORY AND SUPPORT USES Accessory facilities and uses customarily incidental to permitted uses (no limit on number of plumbing fixtures) P P P 18.10.080 Home Occupations, when accessory to permitted residential uses. P P P 18.42.060 Horticulture, gardening, and growing of food products for consumption by occupants of the site. P P P Sale of agricultural products produced on the premises (1) P 18.10.110 Not Yet Approved 161018 jb 0131553 3 December 1, 2016 895\04\2046589.1 1/24/2017 Second Accessory Dwelling Units P P(2) P(2) 18.4210.0470 Junior Accessory Dwelling Units P P(2) P(2) 18.42.040 AGRICULTURE AND OPEN SPACE USES Agriculture P 18.10.110 EDUCATIONAL, RELIGIOUS, AND ASSEMBLY USES Private Educational Facilities CUP CUP CUP Religious Congregations and Institutions CUP CUP CUP PUBLIC/QUASI-PUBLIC USES Community Centers CUP CUP CUP Utility Facilities essential to provision of utility services to the neighborhood, but excluding business offices, construction or storage yards, maintenance facilities, or corporation yards. CUP CUP CUP RECREATION USES Neighborhood Recreational Centers CUP Outdoor Recreation Services CUP CUP RESIDENTIAL USES Single-Family P P P Two-Family use, under one ownership P P Mobile Homes P P P 18.42.100 Residential Care Homes P P P RETAIL USES Cemeteries CUP Commercial Plant Nurseries CUP SERVICE USES Convalescent Facilities CUP Day Care Centers CUP CUP CUP Small Adult Day Care Homes P P P Large Adult Day Care Homes CUP CUP CUP Small Family Day Care Homes P P P Large Family Day Care Homes P P P Bed & Breakfast Inns P(3) Not Yet Approved 161018 jb 0131553 4 December 1, 2016 895\04\2046589.1 1/24/2017 P = Permitted Use CUP = Conditional Use Permit Required . . . (2) Second Units in R-2 and RMD Zones: An accessory second dwelling unit or a Junior Accessory Dwelling Unit associated with a single-family residence on a lot in the R-2 or RMD zones is permitted, subject to the provisions of Section 18.10.07018.42.040, and such that no more than two units result on the lot. . . . SECTION 5. Section 18.10.040 (Development Standards) of Chapter 18.10 (Low-Density Residential (RE, R-2 and RMD) Districts) of Title 18 (Zoning) is amended to read as follows: 18.10.040 Development Standards (a) Site Specifications, Building Size, Height and Bulk, and Residential Density . . . (5) Maximum House Size: The gross floor area of attached garages and attached second accessory dwelling units and junior accessory dwelling units are included in the calculation of maximum house size. If there is no garage attached to the house, then the square footage of one detached covered parking space shall be included in the calculation. This provision applies only to single-family residences, not to duplexes allowed in the R-2 and RMD districts. . . . (B) Flag Lot Development Standards: (i) Individual Review . . . (i) Individual Review The Individual Review provisions of Section 18.12.110 of the Zoning Ordinance shall be applied to any single-family or two-family residence in the R-2 or RMD districts to those sides of a site that share an interior side lot line with the interior side or rear lot line of a property zoned for or used for single- family or two-family dwellings. , except where architectural review board review is required for an accessory second dwelling on an RMD-zoned site. The individual review criteria shall be applied only to the project's effects on adjacent single-family and two-family uses. [NOTE: STATE LAW REQUIRES MINISTERIAL REVIEW OF ADU’S.] SECTION 6. Section 18.10.060 Table 3 is amended as follows: TABLE 3 PARKING REQUIREMENTS FOR R-E, R-2 AND RMD USES Use Minimum Off-Street Parking Requirement Not Yet Approved 161018 jb 0131553 5 December 1, 2016 895\04\2046589.1 1/24/2017 Single-family residential use (excluding second accessory dwelling units) 2 spaces per unit, of which one must be covered Two family (R2 & RMD districts) 3 spaces total, of which at least two must be covered Second Accessory dwelling unit, attached or detached: >450 sf in size ≤450 sf in size 2 spaces per unit, of which one must be covered 1 space per unit, which may be covered or uncovered See Section 18.42.040(a)(10). Junior accessory dwelling unit None Other Uses See Chapter 18.40 . . . [NOTE: THESE PARKING REQUIREMENTS ARE DEFINED IN STATE LAW. THE CITY HAS THE DISCRETION TO REDUCE THESE REQUIREMENTS, BUT NOT TO INCREASE THEM.] SECTION 7. Section 18.10.070 (Second Dwelling Units) of Chapter 18.10 (Low-Density Residential (RE, R-2 and RMD) Districts) of Title 18 (Zoning) is repealed in its entirety and a new 18.10.070 is added to read as follows: 18.10.070 Accessory and Junior Accessory Dwelling Units Accessory Dwelling Units and Junior Accessory Dwelling Units are subject to the regulations set forth in Section 18.42.040. [NOTE: THESE DEVELOPMENT STANDARDS HAVE BEEN MOVED TO SECTION 18.42.040.] SECTION 8. Section 18.10.120 (Architectural Review) of Chapter 18.10 (Low-Density Residential (RE, R-2 and RMD) Districts) of Title 18 (Zoning) is amended to read as follows: 18.10.120 Architectural Review Architectural review, as required in Section 18.76.020, is required in the R-E, R-2, and RMD districts whenever three or more adjacent residential units are intended to be developed concurrently, whether through subdivision or individual applications. Architectural review is also required for second Not Yet Approved 161018 jb 0131553 6 December 1, 2016 895\04\2046589.1 1/24/2017 dwelling units of more than 900 square feet, when located in the Neighborhood Preservation Combining District (NP). [NOTE: STATE LAW REQUIRES MINISTERIAL REVIEW OF ADU’S.] SECTION 9. Section 18.10.140 (Neighborhood Preservation Combining District (NP) Standards) of Chapter 18.10 (Low-Density Residential (RE, R-2 and RMD) Districts) of Title 18 (Zoning) is amended to read as follows: 18.10.140 Neighborhood Preservation Combining District (NP) Standards . . . (2) Design Review Required For properties on which two or more residential units are developed or modified, design review and approval shall be required by the architectural review board in compliance with procedures established in Section 18.76.020 for any new development or modification to any structure on the property and for site amenities. No design review is required for construction of or modifications to single-family structures that constitute the only principal structure on a parcel of land or for accessory dwelling units or junior accessory units. No design review is required for construction of second dwelling units on a parcel except when the second unit exceeds 900 square feet in size. . . . [NOTE: STATE LAW REQUIRES MINISTERIAL REVIEW OF ADU’S.] SECTION 10. In Section 18.10.150(e), substitute the term “accessory dwelling units” for “second dwelling units”. . . . SECTION 11. Section 18.12.010(a) is amended as follows: (a) Single Family Residential District [R-1] The R-1 single family residential district is intended to create, preserve, and enhance areas suitable for detached dwellings with a strong presence of nature and with open area affording maximum privacy and opportunities for outdoor living and children's play. Minimum site area requirements are established to create and preserve variety among neighborhoods, to provide adequate open area, and to encourage quality design. Second Accessory dwelling units, junior accessory dwelling units and accessory structures or buildings are appropriate. where consistent with the site and neighborhood character. Community uses and facilities, such as churches and schools, should be limited unless no net loss of housing would result. . . . SECTION 12. Section 18.12.030 Table 1, is amended as follows: Table 1 PERMITTED AND CONDITIONAL R-1 RESIDENTIAL USES Not Yet Approved 161018 jb 0131553 7 December 1, 2016 895\04\2046589.1 1/24/2017 R-1 and all R-1 Subdistricts Subject to Regulations for: ACCESSORY AND SUPPORT USES Accessory facilities and uses customarily incidental to permitted uses with no more than two plumbing fixtures and no kitchen facility, or of a size less than or equal to 200 square feet P 18.04.030(a)(3) 18.12.080 Accessory facilities and uses customarily incidental to permitted uses with more than two plumbing fixtures (but with no kitchen), and in excess of 200 square feet in size, but excluding second accessory dwelling units CUP 18.12.080 Home occupations, when accessory to permitted residential P 18.42.060 Horticulture, gardening, and growing of food products for consumption by occupants of the site P Second Accessory Dwelling Units P(1) 18.42.04012.070 Junior Accessory Dwelling Unit P(1) 18.42.040 EDUCATIONAL, RELIGIOUS AND ASSEMBLY USES Private Educational Facilities CUP Churches and Religious Institutions CUP PUBLIC/QUASI PUBLIC USES Community Centers CUP Utility Facilities essential to provision of utility services to the neighborhood, but excluding business offices, construction or storage yards, maintenance facilities, or corporation yards CUP RECREATION USES Outdoor Recreation Services CUP RESIDENTIAL USES Single-Family P Mobile Homes P 18.42.100 Residential Care Homes P SERVICE USES Day Care Centers CUP Small Adult Day Care Homes P Large Adult Day Care Homes CUP Small Family Day Care Homes P Large Family Day Care Homes P P = Permitted Use CUP = Conditional Use Permit Required (1) An Accessory Dwelling Unit or a Junior Accessory Dwelling Unit associated with a single- family residence on a lot is permitted, subject to the provisions of Section 18.42.040, and such that no more than two total units result on the lot. Not Yet Approved 161018 jb 0131553 8 December 1, 2016 895\04\2046589.1 1/24/2017 SECTION 13. Section 18.12.040 Table 2, footnote (8) is amended as follows: (8) Maximum House Size: The gross floor area of attached garages and attached accessory second dwelling units and junior accessory dwelling units are included in the calculation of maximum house size. If there is no garage attached to the house, then the square footage of one detached covered parking space shall be included in the calculation. SECTION 14. Section 18.12.060 Table 4 is amended as follows: Table 4 shows the minimum off-street automobile parking requirements for specific uses in the R- 1 district. Table 4 Parking Requirements for Specific R-1 Uses Use Minimum Off-Street Parking Requirement Single-family residential use (excluding second accessory dwelling units) 2 spaces per unit, of which one must be covered. Second Accessory dwelling unit , attached or detached 2 spaces per unit, of which one must be covered See Section 18.42.040(a)(10). Junior Accessory Dwelling Unit None Other Uses See Chs. 18.52 and 18.54 . . . [NOTE: THESE PARKING REQUIREMENTS ARE DEFINED IN STATE LAW. THE CITY HAS THE DISCRETION TO REDUCE THESE REQUIREMENTS, BUT NOT TO INCREASE THEM.] SECTION 15. Section 18.12.070 (Second Dwelling Units) of Chapter 18.12 (R-1 Single-Family Residential District) of Title 18 (Zoning) is repealed in its entirety and a new 18.12.070 is added to read as follows: 18.12.070 Accessory and Junior Accessory Dwelling Units Not Yet Approved 161018 jb 0131553 9 December 1, 2016 895\04\2046589.1 1/24/2017 Accessory Dwelling Units and Junior Accessory Dwelling Units are subject to the regulations set forth in Section 18.42.040. [NOTE: THESE DEVELOPMENT STANDARDS HAVE BEEN MOVED TO SECTION 18.42.040.] SECTION 16. In Section 18.12.090(b)(2), substitute the term “accessory dwelling unit(s)” for “second dwelling unit(s)”. . . . SECTION 17. In Section 18.12.150(d), substitute the term “accessory dwelling unit(s)” for “second dwelling unit(s)”. . . . SECTION 18. Section 18.28.040, Table 1, is amended as follows: Table 1 Land Uses PF OS AC Subject to Regulations in Chapter: ACCESSORY AND SUPPORT USES Accessory facilities and accessory uses P Chs. 18.40 and 18.42 Eating and drinking services in conjunction with a permitted use CUP (1) Retail services as an accessory use to the administrative offices of a non-profit organization, provided that such retail services do not exceed 25% of the gross floor area of the combined administrative office services and retail service uses CUP (1) Retail services in conjunction with a permitted use CUP (1) Sale of agricultural products produced on the premises; provided, that no permanent commercial structure for the sale or processing of agricultural products shall be permitted. P Second Accessory dwelling units, subject to regulations in Section 18.28.07042.040 P(2) 18.28.070 18.42.040 Junior Accessory Dwelling Unit P(2) 18.42.040 AGRICULTURAL AND OPEN SPACE USES Agricultural Uses, including animal husbandry, crops, dairying, horticulture, nurseries, livestock farming, tree farming, viticulture, and similar uses not inconsistent with the intent and purpose of this chapter P P Not Yet Approved 161018 jb 0131553 10 December 1, 2016 895\04\2046589.1 1/24/2017 Botanical conservatories, outdoor nature laboratories, and similar facilities P Native wildlife sanctuaries P Park uses and uses incidental to park operation P EDUCATIONAL, RELIGIOUS, AND ASSEMBLY USES Business or trade schools CUP (1) Churches and religious institutions CUP (1) Educational, charitable, research, and philanthropic institutions CUP Private educational facilities CUP (1) Public or private colleges and universities and facilities appurtenant thereto CUP Special education classes CUP (1) OFFICE USES Administrative office services for non-profit organizations CUP (1) OTHER USES Other uses which, in the opinion of the director, are similar to those listed as permitted or conditionally permitted uses CUP (1) PUBLIC/QUASI-PUBLIC FACILITY USES All facilities owned or leased, and operated or used, by the City of Palo Alto, the County of Santa Clara, the State of California, the government of the United States, the Palo Alto Unified School District, or any other governmental agency P Communication Facilities CUP Community Centers CUP (1) Utility Facilities CUP CUP CUP RECREATIONAL USES Neighborhood recreation centers CUP (1) Outdoor recreation services CUP (1) CUP Recreational uses including riding academies, clubs, stables, country clubs, and golf courses CUP Youth clubs CUP (1) RESIDENTIAL USES Single-family dwellings P Manufactured housing (including mobile homes on permanent foundations) P 18.40. Guest ranches CUP Residential care facilities, when utilizing existing structures on the site CUP (1) Not Yet Approved 161018 jb 0131553 11 December 1, 2016 895\04\2046589.1 1/24/2017 Residential Care Homes P Residential use, and accessory buildings and uses customarily incidental to permitted dwellings; provided, however, that such permitted dwellings shall be for the exclusive use of the owner or owners, or lessee or lessor of land upon which the permitted agricultural use is conducted, and the residence of other members of the same family and bona fide employees of the aforementioned P SERVICE USES Animal care, including boarding and kennels CUP CUP Cemeteries CUP Cemeteries, not including mausolea, crematoria, or columbaria CUP Small day care homes P Large day care homes CUP Day care centers CUP (1) Art, dance, gymnastic, exercise or music studios or CUP (1) Medical Services: Hospitals CUP Outpatient medical facilities with associated medical research CUP TEMPORARY USES Temporary parking facilities, provided that such facilities CUP (1) TRANSPORTATION USES Airports and airport-related uses CUP (1) . . . (2) An accessory dwelling unit or a Junior Accessory Dwelling Unit associated with a single- family residence on a lot in the OS District is permitted, subject to the provisions of Section 18.42.040, and such that no more than two total units result on the lot. SECTION 19. Section 18.28.070(a)(Second Dwelling Units) is amended as follows: 18.28.070 Additional OS District Regulations The following additional regulations shall apply in the OS district: (a) AccessorySecond Dwelling Units and Junior Dwelling Units Accessory Dwelling Units and Junior Accessory Dwelling Units are subject to the regulations set forth in Section 18.42.040. Not more than one attached or detached second dwelling units shall be allowed on a lot in the OS district, and shall be subject to the following regulations: (1) Second dwelling shall only be permitted on sites with a minimum site area of 10 acres; (2) Attached second dwelling units shall comply with the OS district height limitation of 25 feet; and (3) Second dwelling units shall follow the standards set forth in the Residential Estate (R-E) District for second dwelling units (18.10.070(b)), with the exceptions outlined in subsections 1 and 2 above. Not Yet Approved 161018 jb 0131553 12 December 1, 2016 895\04\2046589.1 1/24/2017 [NOTE: THESE DEVELOPMENT STANDARDS HAVE BEEN MOVED TO SECTION 18.42.040.] . . . SECTION 20. Section 18.42.040 (Accessory and Junior Dwelling Units) is added as follows: 18.42.040 Accessory and Junior Dwelling Units The following regulations apply to zoning districts where accessory dwelling units and junior accessory dwelling units are permitted. (a) Accessory Dwelling Units 1. Purpose The intent of this section is to provide regulations to accommodate accessory dwelling units, in order to provide for variety to the city's housing stock and additional affordable housing opportunities. Accessory dwelling units shall be separate, self-contained living units, with separate entrances from the main residence, whether attached or detached. The standards below are provided to minimize the impacts of accessory dwelling units on nearby residents and throughout the city, and to assure that the size, location and design of such dwellings is compatible with the existing residence on the site and with other structures in the area. 2. Minimum Lot Sizes (i) In the R-1 district and all R-1 subdistricts, the minimum lot size for an accessory dwelling unit shall equal the minimum lot size established for the district or subdistrict. (ii) In the RE district, the minimum lot size for an accessory dwelling unit is one acre. However, for flag lots in the RE District, the minimum lot size shall be 35% greater than the minimum lot size established by Section 21.20.301 of the Subdivision Ordinance. (iii) In the R-2 District the minimum lot size for an accessory dwelling unit is 6,000 square feet and in the RMD District it is 5,000 square feet. All flag lots in the R-2 and RMD Districts shall comply with the lot size requirements set forth in Section 21.20.301 of the Subdivision Ordinance. For R-2 zoned lots of 6,000 square feet or greater, but less than 7,500 square feet, an Accessory Dwelling Unit of 450 square feet or less is permitted. (iv) In the OS District, the minimum lot size for an accessory dwelling unit is 10 acres. [NOTE: STATE LAW ALLOWS THE CITY TO MAINTAIN EXISTING REQUIREMENTS FOR MINIMUM LOT SIZES FOR ACCESSORY DWELLING UNITS. AS A POLICY MATTER, THE CITY COULD CONSIDER REVISING OR ELIMINATING SOME OF THESE REQUIREMENTS TO ENCOURAGE ADDITIONAL UNITS, OR COULD LEAVE THESE REQUIREMENTS IN PLACE WITH THE KNOWLEDGE THAT UNDER STATE LAW, JUNIOR UNITS AND UNITS CONSTRUCTED WITHIN EXISTING BUILDINGS ARE ALLOWED ANYWHERE THERE IS AN EXISTING RESIDENCE, REGARDLESS OF LOT SIZE OR NON-CONFORMANCE.] 3. Setbacks Not Yet Approved 161018 jb 0131553 13 December 1, 2016 895\04\2046589.1 1/24/2017 (i) Accessory dwelling units shall comply with the underlying zoning district’s setbacks. (ii) Notwithstanding section (i) above, no setback shall be required for an existing garage that is converted to an accessory dwelling unit, except as provided in subsection (a)(5) below. (iii) In districts permitting second story accessory dwelling units, a setback of no more than five feet from the side and rear lot lines shall be required for an accessory dwelling unit constructed above a garage. [NOTE: STATE LAW SPECIFIES ITEMS (II) AND (III) ABOVE.] 4. Lot Coverage/FAR An accessory dwelling unit shall be included in the lot coverage and FAR requirements applicable to the primary dwelling unit. [NOTE: THIS IS AN EXISTING CODE REQUIREMENT.] 5. Conversion of Space in Existing Single Family Residence or Existing Accessory Structure Notwithstanding the provisions of subsections (a)(2), (a)(3), (a)(4), (a)(7) and (a)(8), in the R-1 and RE Districts only, an Accessory Dwelling Unit shall be permitted if the unit is contained within the existing space of a single-family residence or and existing accessory structure, has independent exterior access from the existing residence, and the side and rear setbacks are sufficient for fire safety, and if the accessory dwelling unit conforms with the following: a. Accessory dwelling units shall not be required to provide fire sprinklers if they are not required for the primary residence. b. For the purposes of this section, the portion of the single-family residence or accessory structure subject to the conversion, must be legally permitted and existing as of January 1, 2017. c. Notwithstanding the allowance in this section, only one accessory dwelling unit or junior accessory dwelling unit may be located on any lot subject to this section. d. No new or separate utility connection may be required between the accessory dwelling unit and utility service, such as water, sewer, and power. e. The accessory dwelling unit shall comply with the provisions of subsections (a)(6), (a)(9), and (a)(10). [NOTE: THESE REQUIREMENTS ARE REQUIRED BY STATE LAW, WITH THE EXCEPTION OF ITEM (I)(C).] 6. Privacy Any window, door or deck of a second story accessory dwelling unit shall utilize techniques to lessen views onto adjacent properties to preserve the privacy of residents. These techniques may include placement of doors, windows and decks to minimize overview of neighboring dwelling units, use of obscured glazing, window placement above eye level, and screening between the properties. Not Yet Approved 161018 jb 0131553 14 December 1, 2016 895\04\2046589.1 1/24/2017 [NOTE: STATE LAW REQUIRES A MINISTERIAL PROCESS FOR APPROVAL OF ADU’S, BUT ALLOWS DEVELOPMENT STANDARDS. CITY POLICY MAKERS SHOULD CONSIDER WHETHER THE PRIVACY-RELATED STANDARDS SUGGESTED HERE ARE SUFFICIENTLY CLEAR SO AS TO BE MINISTERIAL.] 7. Additional Development Standards for Attached Accessory Dwelling Units (i) Attached accessory dwelling units are those attached to the main dwelling. All attached accessory dwelling units shall be subject to the additional development requirements specified below. (ii) Attached unit size counts toward the calculation of maximum house size. (iii) Unit Size: The maximum size of an attached accessory dwelling unit living area shall not exceed 450 square feet and shall not exceed 50% of the existing living area of the primary existing dwelling unit. The accessory dwelling unit and any covered parking shall be included in the total floor area for the site, but the covered parking area is not included in the maximum 450 square feet for attached unit. Any basement space used as an accessory dwelling unit or portion thereof shall be counted as floor area for the purpose of calculating the maximum size of the accessory unit. (iv) Maximum height: one story and 17 feet. However, in the RE District, attached Accessory Dwelling Units may be 30 feet. In the OS zone, attached Accessory Dwelling Units may be 25 feet. (v) Separate Entry Required for Attached Units: A separate exterior entry shall be provided to serve an accessory dwelling unit. (vi) Except on corner lots, the accessory dwelling unit may not have an entranceway facing the same lot line (property line) as the entranceway to the main dwelling unit unless the second entranceway is located in the rear half of the lot. Exterior staircases to second floor units shall be located toward the interior side or rear yard of the property. (vii) In the RE zone, maximum size of covered parking area for the accessory dwelling unit is 200 square feet. [NOTE: DEVELOPMENT STANDARDS IN THIS SECTION DERIVE FROM THE CITY’S EXISTING REQUIREMENTS, AS MODIFIED TO COMPLY WITH STATE LAW. THE CITY COULD CHOOSE TO MODIFY SOME OF THESE STANDARDS.] 8. Additional Development Standards for Detached Accessory Dwelling Units (i) Detached accessory dwelling units are those detached from the main dwelling. All detached accessory dwelling units shall be subject to the additional development standards specified below. (ii) The maximum size of the detached accessory dwelling unit living area shall be 900 square feet. a. The accessory dwelling unit and covered parking shall be included in the total floor area for the site, but the covered parking area is not included within the maximum 900 square feet for detached unit. Not Yet Approved 161018 jb 0131553 15 December 1, 2016 895\04\2046589.1 1/24/2017 b. Any basement space used as an accessory dwelling unit or portion thereof shall be counted as floor area for the purpose of calculating the maximum size of the accessory unit. c. For R-2 zoned lots of 6,000 square feet or greater, but less than 7,500 square feet, a detached Accessory Dwelling Unit of 450 square feet or less is permitted. (iii) Maximum height: one story and 17 feet. (iv) Design: The detached accessory dwelling unit shall be similar to the main residence with respect to style, roof pitch, color and materials. [NOTE: STATE LAW REQUIRES A MINISTERIAL PROCESS FOR APPROVAL OF ADU’S, BUT ALLOWS DEVELOPMENT STANDARDS. CITY POLICY MAKERS SHOULD CONSIDER WHETHER THE ABOVE DESIGN- RELATED STANDARD SUGGESTED HERE ARE SUFFICIENTLY CLEAR SO AS TO BE MINISTERIAL.] (v) In the RE District, the maximum size of covered parking area for the detached accessory dwelling unit is 200 square feet. (vi) There shall be no windows, doors, mechanical equipment, or venting or exhaust systems located within six feet of a property line. [NOTE: DEVELOPMENT STANDARDS IN THIS SECTION DERIVE FROM THE CITY’S EXISTING REQUIREMENTS, AS MODIFIED TO COMPLY WITH STATE LAW. THE CITY COULD CHOOSE TO MODIFY SOME OF THESE STANDARDS.] 9. Additional Requirements for All Accessory Dwelling Units (i) Sale of Units: The Accessory dwelling unit shall not be sold separately from the primary residence. (ii) Short term rentals. The accessory dwelling unit shall not be rented for periods of less than 30 days. (iii) Number of Units Allowed: Only one accessory dwelling unit or junior accessory dwelling unit may be located on any residentially zoned lot. (iv) Existing Development: A single-family dwelling must exist on the lot or shall be constructed on the lot in conjunction with the construction of the accessory dwelling unit. (i)(v) Occupancy: The owner of a parcel proposed for accessory dwelling use shall occupy as a principal residence either the primary dwelling or the accessory dwelling. (vi) Prior to issuance of a building permit for the accessory dwelling unit, the owner shall record a deed restriction in a form approved by the city to notify future owners of the owner occupancy requirements and restrictions on short-term rentals. Not Yet Approved 161018 jb 0131553 16 December 1, 2016 895\04\2046589.1 1/24/2017 (vii) Accessory dwelling units shall not be required to provide fire sprinklers if they are not required for the primary residence. (viii) Street Address Required: Street addresses shall be assigned to all accessory dwellings to assist in emergency response. (ix) Street Access: The accessory dwelling unit shall have street access from a driveway in common with the main residence in order to prevent new curb cuts, excessive paving, and elimination of street trees, unless separate driveway access is permitted by the director upon a determination that separate access will result in fewer environmental impacts such as excessive paving, unnecessary grading or unnecessary tree removal, and that such separate access will not create the appearance, from the street, of a lot division or two-family use. [NOTE: THE STANDARDS SUGGESTED HERE DERIVE FROM STATE LAW AND EXISTING CODE REQUIREMENTS WITH SOME CLARIFICATIONS AND UPDATES.] 10. Parking The following parking criteria apply to both detached and attached accessory dwelling units: (i) One parking space per unit or one parking space per bedroom, whichever is greater, shall be provided for the accessory dwelling unit. (ii) Such parking may be provided as tandem parking, may be located on an existing driveway and may be located in side and rear setbacks, but not in front setback. For a corner lot, parking may be located within the corner street side setback if located at least ten (10) feet from the property line. (iii) Notwithstanding subsection (i) above, no parking shall be required for: a. Accessory dwelling units located within one-half mile of public transit or within 0.75 mile of the Palo Alto, California Avenue, or San Antonio Caltrain stations. For purposes of this section, “public transit” shall include a bus stop with fixed route bus service that provides transit service at 15 minute intervals or better during peak commute periods. b. Accessory dwelling units located within an architecturally and historically significant National, California or locally designated historic district. c. Accessory dwelling units part of the existing primary residence or an existing accessory structure. d. Accessory dwelling units located within a Residential Parking Program District. e. When on-street parking permits are required but not offered to the occupant of the Accessory dwelling unit. f. When there is a car-share vehicle located within one block of the Accessory dwelling unit. For purposes of this section, “car-share vehicle” shall mean part of an established program intended to stay in a fixed location for at least 10 years and available to the public. (iv) If an accessory dwelling unit replaces an existing garage, replacement spaces must be provided. When a garage, carport, or covered parking structure is demolished in conjunction with the construction of an accessory dwelling unit, any required replacement spaces may be located in any Not Yet Approved 161018 jb 0131553 17 December 1, 2016 895\04\2046589.1 1/24/2017 configuration on the same lot as the accessory dwelling unit, including, but not limited to, as covered spaces, uncovered spaces, or tandem spaces, or by the use of mechanical automobile parking lifts. [NOTE: THIS SECTION INCORPORATES NEW STATE LAW PARKING REQUIREMENTS.] (b) Junior Accessory Dwelling Units 1. Purposes: This Section provides standards for the establishment of junior accessory dwelling units, an alternative to the standard accessory dwelling unit. Junior accessory dwelling units will typically be smaller than an accessory dwelling unit, will be constructed within the walls of an existing single family structure and requires owner occupancy in the single family residence where the unit is located. 2. Development Standards. Junior accessory dwelling units shall comply with the following standards: (i) Number of Units Allowed: Either one accessory dwelling unit or one junior accessory dwelling unit, may be located on any residentially zoned lot that permits a single-family dwelling except as otherwise regulated or restricted by an adopted Coordinated Area Plan or Specific Plan. A junior accessory dwelling unit may only be located on a lot which already contains one legal single-family dwelling. (ii) Size: A junior accessory dwelling unit shall not exceed 500 square feet in size. (iii) Lot Coverage/FAR: A junior accessory dwelling unit shall be included in the lot coverage and FAR requirements applicable to the primary dwelling unit. (iii) Owner Occupancy: The owner of a parcel proposed for a junior accessory dwelling unit shall occupy as a principal residence either the primary dwelling or the junior accessory dwelling. Owner-occupancy is not required if the owner is another governmental agency, land trust, or housing organization. (iv) Sale Prohibited: A junior accessory dwelling unit shall not be sold independently of the primary dwelling on the parcel. (v) Short term rentals: The junior accessory dwelling unit shall not be rented for periods of less than 30 days. (vi) Location of Junior Accessory Dwelling Unit: A junior accessory dwelling unit must be created within the existing walls of an existing primary dwelling, and must include conversion of an existing bedroom. (vii) Separate Entry Required: A separate exterior entry shall be provided to serve a junior accessory dwelling unit, with an interior entry to the main living area. A junior accessory dwelling may include a second interior doorway for sound attenuation. Not Yet Approved 161018 jb 0131553 18 December 1, 2016 895\04\2046589.1 1/24/2017 (viii) Kitchen Requirements: The junior accessory dwelling unit shall include an efficiency kitchen, requiring and limited to the following components: a. A sink with a maximum waste line diameter of one-and-a-half (1.5) inches, b. A cooking facility or appliance which does not require electrical service greater than one hundred and twenty (120) volts, or natural or propane gas, and c. A food preparation counter and storage cabinets that are of reasonable size in relation to the size of the junior accessory dwelling unit. (ix) Parking. No additional parking is required beyond that required at the time the existing primary dwelling was constructed. (x) Fire Protection; Utility Service. For the purposes of any fire or life protection ordinance or regulation or for the purposes of providing service for water, sewer, or power, a junior accessory dwelling unit shall not be considered a separate or new unit. (xi) Deed Restriction. Prior to the issuance of a building permit for a junior accessory dwelling unit, the owner shall record a deed restriction in a form approved by the city that includes a prohibition on the sale of the junior accessory dwelling unit separate from the sale of the single-family residence, requires owner-occupancy, does not permit short-term rentals, and restricts the size and attributes of the junior dwelling unit to those that conform with this section. [NOTE: THIS IS A NEW SECTION THAT IMPLEMENTS AB 2406 ABOUT JUNIOR ACCESSORY DWELLING UNITS IN RESIDENTIAL DISTRICTS WHICH CURRENTLY PERMIT ADU’S.] SECTION 21. Section 18.52.040 (6)(c) Table 1, is amended as follows: Table 1 Minimum Off-Street Parking Requirements Use Vehicle Parking Requirement (# of spaces) Bicycle Parking Requirement Spaces Class1 Long Term (LT) and Short Term (ST) RESIDENTIAL USES Single -Family Residential (Primary Unit) Tandem Parking Allowed (a) In the OS district 4 spaces, of which at least one space must be covered None (b) In all other districts 2 spaces, of which at least one space must be covered Not Yet Approved 161018 jb 0131553 19 December 1, 2016 895\04\2046589.1 1/24/2017 (c) Underground parking for single family uses is prohibited, except pursuant to a variance granted in accordance with the provisions of Chapter 18.76 (Permits and Approvals) of this title, in which case the area of the underground garage shall be counted toward the gross floor area. Second Accessory Dwelling Unit (In addition to main dwelling unit requirements) >450 sf in size <450 sf in size 2 spaces, of which at least one must be covered 1 space, covered or uncovered See Section 18.42.040(a)(10). None Junior Accessory Dwelling Units None Two-Family Residential (R-2 & RMD Districts) 1.5 spaces per unit, of which at least one space per unit must be covered Tandem Parking Allowed, with one tandem space per unit, associated directly with another parking space for the same unit 1 space per Unit 100% – LT Not Yet Approved 161018 jb 0131553 20 December 1, 2016 895\04\2046589.1 1/24/2017 Multiple -Family Residential 1.25 per studio unit 1.5 per 1-bedroom unit 2 per 2-bedroom or larger unit At least one space per unit must be covered Tandem parking allowed for any unit requiring two spaces (one tandem space per unit, associated directly with another parking space for the same unit, up to a maximum of 25% of total required spaces for any project with more than four (4) units) 1 per unit 100% – LT (a) Guest Parking For projects exceeding 3 units; 1 space plus 10% of total number of units, provided that if more than one space per unit is assigned or secured parking, then guest spaces equal to 33% of all units is required. 1 space for each 10 units 100% – ST . . . SECTION 21. In Section 18.76.020 (D), substitute the term “accessory dwelling unit(s)” for “second dwelling unit(s)”. SECTION 22. Any provision of the Palo Alto Municipal Code or appendices thereto inconsistent with the provisions of this Ordinance, to the extent of such inconsistencies and no further, is hereby repealed or modified to that extent necessary to effect the provisions of this Ordinance. SECTION 23. If any section, subsection, sentence, clause, or phrase of this Ordinance is for any reason held to be invalid or unconstitutional by a decision of any court of competent jurisdiction, such decision shall not affect the validity of the remaining portions of this Ordinance. The City Council hereby declares that it would have passed this Ordinance and each and every section, subsection, sentence, clause, or phrase not declared invalid or unconstitutional without regard to whether any portion of the ordinance would be subsequently declared invalid or unconstitutional. SECTION 24. The Council finds that the adoption of this ordinance is exempt from the provisions of the California Environmental Quality Act pursuant to CEQA Guideline sections 15061(b) and 15301, 15303 and 15305 because it simply provides a comprehensive permitting scheme. Not Yet Approved 161018 jb 0131553 21 December 1, 2016 895\04\2046589.1 1/24/2017 SECTION 25. This ordinance shall be effective on the thirty-first date after the date of its adoption. INTRODUCED: PASSED: AYES: NOES: ABSENT: NOT PARTICIPATING: ATTEST: ____________________________ ____________________________ City Clerk Mayor APPROVED AS TO FORM: APPROVED: ____________________________ ____________________________ Senior Asst. City Attorney City Manager ____________________________ Director of Planning & Community Environment City of Palo Alto COLLEAGUES MEMO October 19, 2015 Page 1 of 2 (ID # 6249) DATE: October 19, 2015 TO: City Council Members FROM: Council Members Scharff, Schmid, and Wolbach SUBJECT: COLLEAGUES MEMO REGARDING STUDYING POLICY TO INCREASE ACCESSORY DWELLING UNITS (ADU'S) Goal To find opportunities to make available additional housing in Palo Alto with minimal impact on community character. In keeping with our Comprehensive Plan and recently adopted Housing Element, expand opportunities for residents of single family homes by adding Accessory Dwelling Units (ADUs) – also known as Secondary Units or In-law Units. Recommendation We ask our Council Colleagues to refer this matter to the Planning and Transportation Commission, to consider, analyze and make recommendations to the City Council to update our city ordinances relating to ADUs, in order to: (1) facilitate ADU creation while minimizing impacts on community character, with sensitivity to neighborhood design standards; (2) consider steps to bring existing non-compliant ADUs into compliance; and (3) any other relevant recommendations. Background and Discussion Palo Alto's Housing element, adopted November 10, 2014, calls for looking at easing restrictions on ADUs, as did Palo Alto's prior comprehensive plan. Program H1.1.2 of the 2014 Housing Element of the Comprehensive Plan states: Consider modifying development standards for second units, where consistent with maintaining the character of existing neighborhoods. The modifications should encourage the production of second units affordable to very low, low, or moderate income households. Palo Alto's housing crisis and aging population have led many residents to call for a renewed discussion of this topic and timely, appropriate action. Palo Alto has, by some reports, the highest median rent in the country. We have high demand for housing at a variety of income- levels, with limited supply. Particularly considering young adults returning from college or early October 19, 2015 Page 2 of 2 (ID # 6249) in their career, or professionals who work in Palo Alto, there are social, traffic, and environmental benefits to people residing here. Palo Alto's aging population includes many “empty nesters” who live alone in a house meant for a large family. Many senior or disabled residents may prefer to remain in their home but require assistance. Many Palo Alto families would like to have multiple generations together. Other communities such as Menlo Park (2013), Belmont (May of 2015), and the County of San Mateo are also working on this issue and ADUs as a source of affordable housing appear in many cities’ Housing Elements. ADUs may provide benefits for: 1.Aging In-Place: A resident requiring regular in-home assistance can use an ADU to provide greater privacy for a caregiver. 2.Family Ties: A multi-generational family preferring to stay together for familial ties and financial savings can enjoy greater privacy for different generations with an ADU. 3.Supplemental Income: A single resident or fixed-income retired resident or couple may enjoy additional income by offering their ADU as a much needed rental space to a professional or student. 4.Modest Income Residents, Workers, and Students: The resident of an ADU may work in Palo Alto or attend Stanford. By living locally, they will have greater options to bike, walk, or take public transportation locally, rather than drive daily and suffer a long commute (which is also less environmentally sustainable). 5.RHNA Obligation: ADUs can provide a mechanism to meet our required RHNA housing numbers with minimal impacts on our community. ADUs present minimal impact to neighborhoods, retaining the physical character of a neighborhood while strengthening its social character. We have committed in our housing element to consider this issue and to have conducted a study of this issue no later than November 10, 2017. Given escalating rents and the current housing crisis, we should start this process now. Resource Impact The City Manager reports that this project will be an addition to the Planning and Attorney’s staff work plans. We will keep Council informed on the schedule and progress on the project. (It is recognized, as the Colleague’s Memo states, that this task has already been committed to by prior Council action). Summary of Public Comments • General support for ADUs and JADUs to provide economic and population diversity, especially the young and seniors. • Support for proposed changes and request that City study options for greater increase • Some support for reduction or elimination of parking requirement • Request that garage conversions be expedited • Request for more flexibility, including floor area • Some support to reduce minimum qualifying lot size from 35 to 20%, but not floor area • Support for removal of minimum size threshold • City should minimize negative impacts • Need to consider impacts traffic, privacy noise, shopping, services • Concern about definition of transit relative to bus for parking reduction qualification • Some advocated expanding transit definition for greater parking reductions • Concern about parking impacts and proposed parking reductions • Afraid about disproportionate increase in ADUs in midtown and South Palo Alto • Concern about garage ADU conversions near property lines and impacts on privacy. • Concern for loss of trees • Concern about short term rentals and enforcement of 30 day minimum term • Need to improve transparency and provide for appeal process, especially if ministerial • League of Women Voters expressed support for increasing density of single family areas to expand diversity at all economic levels. Also support JADU and reduction in parking. Request that City look at other options to increase ADU • Sierra Club and Audubon Society support streamlining and increase in housing. But concern about removal of trees and reduction of canopy. Request for transparency and ability to appeal tree removals 120-28-100 120-28-066120-28-067 120-28-058120-28-057120-28-030 120-28-091 120-17-087 120-17-039 120-28-074 120-28-085120-28-084120-28-051 BULLIS SCHOOLEGAN JUNIOR HIGH SCHOOL 167-22-012 Bullis Charter School SANTA RITA ELEMENTARY SCHOOL 167-24-029 167-10-082167-10-083 167-10-084 167-10-059167-10-060 167-10-061 167-10-062 167-10-063 167-10-064 167-10-065167-10-066167-10-067167-10-068 167-10-069 167-10-070 167-10-071 167-10-072 167-10-103 167-10-104 127-69-003OverflowValue 127-69-004OverflowParcel 147-09-072 167-10-046 167-10-047 167-10-049 167-10-050 167-10-051 167-10-054 167-10-052167-10-053 167-10-048 167-10-056 167-10-057 167-10-092 167-10-055 167-10-055167-14-006 167-14-009 167-14-069 167-14-068167-14-005167-14-004 120-28-086 120-28-090 120-28-087 120-28-088 120-28-082120-28-081120-28-080120-28-079 120-28-078120-28-077120-28-076120-28-075120-28-073120-28-072120-28-071120-28-070120-28-069120-28-068120-28-053 120-28-065 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120-04-112120-04-113 120-24-046120-24-047 142-02-026 142-02-025 RamonaStreetDistrict ProfessorvilleHistoric District Green Gables Greenmeadow Units 1 and 2 Fa b i a n W a y Newell Rd California St Latham St Middle Ave Welch Coyote H i l l Rd Hansen Way Lambert Matadero Ave Lo m a V erde A ve C olorad o A ve Park Blvd Birch N. California Ave Amaranta El Ca m in o W ay Lytton Ave Hamilton Ave Homer Ave Channing Ave Channing Ave Guinda Stanford Ave Waverley St. Churchill Ave tPe er C o u tts S e r r a S t Arbore tum Ga lvez P a r k B lv d Amphi t h e a t r e P k w Charleston Rd Alma St s A l t o s A v e Hillv ie w A v e Old Page M i ll R d o l d e ntes Rd E mb a r c a d e r o El C a m ino R eal University Oregon Page Mill Alma Arastradero E M e a d o w Foothill Middlefield Sand Hill San Antonio This map is a product of the City of Palo Alto GIS This document is a graphic representation only of best available sources. Legend Half Mile Area from Bus/Shuttle Routes and Stops Half Mile from Caltrain Stations 3/4 Mile Radius from Caltrain Stations Caltrain Stations Historic Designated Districts Existing Residential Parking Permit Areas Proposed Residential Parking Permit Area City Jurisdictional Limits 0' 2600' Ac c e s s o r y D w e l l i n g U n i t P a r k i n g E x e m p t i o n A r e a s CITY O F PALO A L TO IN C O R P O RATE D C ALIFOR N IA P a l o A l t oT h e C i t y o f A P RIL 16 1894 The City of Palo Alto assumes no responsibility for any errors. ©1989 to 2016 City of Palo Altocmoitra, 2017-02-14 16:35:01ADU Eligibility RPP Parking Exemptionswithoutparcels (\\cc-maps\gis$\gis\admin\Personal\Planning.mdb) SB 1069 Page 1 SB-1069 Land use: zoning. (2015-2016) SECTION 1. Section 65582.1 of the Government Code is amended to read: 65582.1. The Legislature finds and declares that it has provided reforms and incentives to facilitate and expedite the construction of affordable housing. Those reforms and incentives can be found in the following provisions: (a) Housing element law (Article 10.6 (commencing with Section 65580) of Chapter 3). (b) Extension of statute of limitations in actions challenging the housing element and brought in support of affordable housing (subdivision (d) of Section 65009). (c) Restrictions on disapproval of housing developments (Section 65589.5). (d) Priority for affordable housing in the allocation of water and sewer hookups (Section 65589.7). (e) Least cost zoning law (Section 65913.1). (f) Density bonus law (Section 65915). (g) Second Accessory dwelling units (Sections 65852.150 and 65852.2). (h) By-right housing, in which certain multifamily housing are designated a permitted use (Section 65589.4). (i) No-net-loss-in zoning density law limiting downzonings and density reductions (Section 65863). (j) Requiring persons who sue to halt affordable housing to pay attorney fees (Section 65914) or post a bond (Section 529.2 of the Code of Civil Procedure). (k) Reduced time for action on affordable housing applications under the approval of development permits process (Article 5 (commencing with Section 65950) of Chapter 4.5). (l) Limiting moratoriums on multifamily housing (Section 65858). (m) Prohibiting discrimination against affordable housing (Section 65008). (n) California Fair Employment and Housing Act (Part 2.8 (commencing with Section 12900) of Division 3). (o) Community redevelopment law (Part 1 (commencing with Section 33000) of Division 24 of the Health and Safety Code, and in particular Sections 33334.2 and 33413). SEC. 2. SB 1069 Page 2 Section 65583.1 of the Government Code is amended to read: 65583.1. (a) The Department of Housing and Community Development, in evaluating a proposed or adopted housing element for substantial compliance with this article, may allow a city or county to identify adequate sites, as required pursuant to Section 65583, by a variety of methods, including, but not limited to, redesignation of property to a more intense land use category and increasing the density allowed within one or more categories. The department may also allow a city or county to identify sites for second accessory dwelling units based on the number of second accessory dwelling units developed in the prior housing element planning period whether or not the units are permitted by right, the need for these units in the community, the resources or incentives available for their development, and any other relevant factors, as determined by the department. Nothing in this section reduces the responsibility of a city or county to identify, by income category, the total number of sites for residential development as required by this article. (b) Sites that contain permanent housing units located on a military base undergoing closure or conversion as a result of action pursuant to the Defense Authorization Amendments and Base Closure and Realignment Act (Public Law 100-526), the Defense Base Closure and Realignment Act of 1990 (Public Law 101-510), or any subsequent act requiring the closure or conversion of a military base may be identified as an adequate site if the housing element demonstrates that the housing units will be available for occupancy by households within the planning period of the element. No sites containing housing units scheduled or planned for demolition or conversion to nonresidential uses shall qualify as an adequate site. Any city, city and county, or county using this subdivision shall address the progress in meeting this section in the reports provided pursuant to paragraph (1) of subdivision (b) of Section 65400. (c) (1) The Department of Housing and Community Development may allow a city or county to substitute the provision of units for up to 25 percent of the community’s obligation to identify adequate sites for any income category in its housing element pursuant to paragraph (1) of subdivision (c) of Section 65583 where the community includes in its housing element a program committing the local government to provide units in that income category within the city or county that will be made available through the provision of committed assistance during the planning period covered by the element to low- and very low income households at affordable housing costs or affordable rents, as defined in Sections 50052.5 and 50053 of the Health and Safety Code, and which meet the requirements of paragraph (2). Except as otherwise provided in this subdivision, the community may substitute one dwelling unit for one dwelling unit site in the applicable income category. The program shall do all of the following: (A) Identify the specific, existing sources of committed assistance and dedicate a specific portion of the funds from those sources to the provision of housing pursuant to this subdivision. SB 1069 Page 3 (B) Indicate the number of units that will be provided to both low- and very low income households and demonstrate that the amount of dedicated funds is sufficient to develop the units at affordable housing costs or affordable rents. (C) Demonstrate that the units meet the requirements of paragraph (2). (2) Only units that comply with subparagraph (A), (B), or (C) qualify for inclusion in the housing element program described in paragraph (1), as follows: (A) Units that are to be substantially rehabilitated with committed assistance from the city or county and constitute a net increase in the community’s stock of housing affordable to low- and very low income households. For purposes of this subparagraph, a unit is not eligible to be “substantially rehabilitated” unless all of the following requirements are met: (i) At the time the unit is identified for substantial rehabilitation, (I) the local government has determined that the unit is at imminent risk of loss to the housing stock, (II) the local government has committed to provide relocation assistance pursuant to Chapter 16 (commencing with Section 7260) of Division 7 of Title 1 to any occupants temporarily or permanently displaced by the rehabilitation or code enforcement activity, or the relocation is otherwise provided prior to displacement either as a condition of receivership, or provided by the property owner or the local government pursuant to Article 2.5 (commencing with Section 17975) of Chapter 5 of Part 1.5 of Division 13 of the Health and Safety Code, or as otherwise provided by local ordinance; provided the assistance includes not less than the equivalent of four months’ rent and moving expenses and comparable replacement housing consistent with the moving expenses and comparable replacement housing required pursuant to Section 7260, (III) the local government requires that any displaced occupants will have the right to reoccupy the rehabilitated units, and (IV) the unit has been found by the local government or a court to be unfit for human habitation due to the existence of at least four violations of the conditions listed in subdivisions (a) to (g), inclusive, of Section 17995.3 of the Health and Safety Code. (ii) The rehabilitated unit will have long-term affordability covenants and restrictions that require the unit to be available to, and occupied by, persons or families of low- or very low income at affordable housing costs for at least 20 years or the time period required by any applicable federal or state law or regulation. (iii) Prior to initial occupancy after rehabilitation, the local code enforcement agency shall issue a certificate of occupancy indicating compliance with all applicable state and local building code and health and safety code requirements. (B) Units that are located either on foreclosed property or in a multifamily rental or ownership housing complex of three or more units, are converted with committed assistance from the city or county from nonaffordable to affordable by acquisition of the unit or the purchase of affordability covenants and restrictions for the unit, are not acquired by eminent domain, and constitute a net increase in the community’s stock of housing affordable to low- and very low income households. For purposes of this subparagraph, a unit is not converted by acquisition or the purchase of affordability covenants unless all of the following occur: SB 1069 Page 4 (i) The unit is made available for rent at a cost affordable to low- or very low income households. (ii) At the time the unit is identified for acquisition, the unit is not available at an affordable housing cost to either of the following: (I) Low-income households, if the unit will be made affordable to low-income households. (II) Very low income households, if the unit will be made affordable to very low income households. (iii) At the time the unit is identified for acquisition the unit is not occupied by low- or very low income households or if the acquired unit is occupied, the local government has committed to provide relocation assistance prior to displacement, if any, pursuant to Chapter 16 (commencing with Section 7260) of Division 7 of Title 1 to any occupants displaced by the conversion, or the relocation is otherwise provided prior to displacement; provided the assistance includes not less than the equivalent of four months’ rent and moving expenses and comparable replacement housing consistent with the moving expenses and comparable replacement housing required pursuant to Section 7260. (iv) The unit is in decent, safe, and sanitary condition at the time of occupancy. (v) The unit has long-term affordability covenants and restrictions that require the unit to be affordable to persons of low- or very low income for not less than 55 years. (vi) For units located in multifamily ownership housing complexes with three or more units, or on or after January 1, 2015, on foreclosed properties, at least an equal number of new- construction multifamily rental units affordable to lower income households have been constructed in the city or county within the same planning period as the number of ownership units to be converted. (C) Units that will be preserved at affordable housing costs to persons or families of low- or very low incomes with committed assistance from the city or county by acquisition of the unit or the purchase of affordability covenants for the unit. For purposes of this subparagraph, a unit shall not be deemed preserved unless all of the following occur: (i) The unit has long-term affordability covenants and restrictions that require the unit to be affordable to, and reserved for occupancy by, persons of the same or lower income group as the current occupants for a period of at least 40 years. (ii) The unit is within an “assisted housing development,” as defined in paragraph (3) of subdivision (a) of Section 65863.10. (iii) The city or county finds, after a public hearing, that the unit is eligible, and is reasonably expected, to change from housing affordable to low- and very low income households to any other use during the next five years due to termination of subsidy contracts, mortgage prepayment, or expiration of restrictions on use. SB 1069 Page 5 (iv) The unit is in decent, safe, and sanitary condition at the time of occupancy. (v) At the time the unit is identified for preservation it is available at affordable cost to persons or families of low- or very low income. (3) This subdivision does not apply to any city or county that, during the current or immediately prior planning period, as defined by Section 65588, has not met any of its share of the regional need for affordable housing, as defined in Section 65584, for low- and very low income households. A city or county shall document for any housing unit that a building permit has been issued and all development and permit fees have been paid or the unit is eligible to be lawfully occupied. (4) For purposes of this subdivision, “committed assistance” means that the city or county enters into a legally enforceable agreement during the period from the beginning of the projection period until the end of the second year of the planning period that obligates sufficient available funds to provide the assistance necessary to make the identified units affordable and that requires that the units be made available for occupancy within two years of the execution of the agreement. “Committed assistance” does not include tenant-based rental assistance. (5) For purposes of this subdivision, “net increase” includes only housing units provided committed assistance pursuant to subparagraph (A) or (B) of paragraph (2) in the current planning period, as defined in Section 65588, that were not provided committed assistance in the immediately prior planning period. (6) For purposes of this subdivision, “the time the unit is identified” means the earliest time when any city or county agent, acting on behalf of a public entity, has proposed in writing or has proposed orally or in writing to the property owner, that the unit be considered for substantial rehabilitation, acquisition, or preservation. (7) In the third year of the planning period, as defined by Section 65588, in the report required pursuant to Section 65400, each city or county that has included in its housing element a program to provide units pursuant to subparagraph (A), (B), or (C) of paragraph (2) shall report in writing to the legislative body, and to the department within 30 days of making its report to the legislative body, on its progress in providing units pursuant to this subdivision. The report shall identify the specific units for which committed assistance has been provided or which have been made available to low- and very low income households, and it shall adequately document how each unit complies with this subdivision. If, by July 1 of the third year of the planning period, the city or county has not entered into an enforceable agreement of committed assistance for all units specified in the programs adopted pursuant to subparagraph (A), (B), or (C) of paragraph (2), the city or county shall, not later than July 1 of the fourth year of the planning period, adopt an amended housing element in accordance with Section 65585, identifying additional adequate sites pursuant to paragraph (1) of subdivision (c) of Section 65583 sufficient to accommodate the number of units for which committed assistance was not provided. If a city or county does not amend its housing element to identify adequate sites to address any shortfall, or fails to complete the rehabilitation, acquisition, purchase of SB 1069 Page 6 affordability covenants, or the preservation of any housing unit within two years after committed assistance was provided to that unit, it shall be prohibited from identifying units pursuant to subparagraph (A), (B), or (C) of paragraph (2) in the housing element that it adopts for the next planning period, as defined in Section 65588, above the number of units actually provided or preserved due to committed assistance. (d) A city or county may reduce its share of the regional housing need by the number of units built between the start of the projection period and the deadline for adoption of the housing element. If the city or county reduces its share pursuant to this subdivision, the city or county shall include in the housing element a description of the methodology for assigning those housing units to an income category based on actual or projected sales price, rent levels, or other mechanisms establishing affordability. SEC. 3. Section 65589.4 of the Government Code is amended to read: 65589.4. (a) An attached housing development shall be a permitted use not subject to a conditional use permit on any parcel zoned for an attached housing development if local law so provides or if it satisfies the requirements of subdivision (b) and either of the following: (1) The attached housing development satisfies the criteria of Section 21159.22, 21159.23, or 21159.24 of the Public Resources Code. (2) The attached housing development meets all of the following criteria: (A) The attached housing development is subject to a discretionary decision other than a conditional use permit and a negative declaration or mitigated negative declaration has been adopted for the attached housing development under the California Environmental Quality Act (Division 13 (commencing with Section 21000) of the Public Resources Code). If no public hearing is held with respect to the discretionary decision, then the negative declaration or mitigated negative declaration for the attached housing development may be adopted only after a public hearing to receive comments on the negative declaration or mitigated negative declaration. (B) The attached housing development is consistent with both the jurisdiction’s zoning ordinance and general plan as it existed on the date the application was deemed complete, except that an attached housing development shall not be deemed to be inconsistent with the zoning designation for the site if that zoning designation is inconsistent with the general plan only because the attached housing development site has not been rezoned to conform with the most recent adopted general plan. (C) The attached housing development is located in an area that is covered by one of the following documents that has been adopted by the jurisdiction within five years of the date the application for the attached housing development was deemed complete: SB 1069 Page 7 (i) A general plan. (ii) A revision or update to the general plan that includes at least the land use and circulation elements. (iii) An applicable community plan. (iv) An applicable specific plan. (D) The attached housing development consists of not more than 100 residential units with a minimum density of not less than 12 units per acre or a minimum density of not less than eight units per acre if the attached housing development consists of four or fewer units. (E) The attached housing development is located in an urbanized area as defined in Section 21071 of the Public Resources Code or within a census-defined place with a population density of at least 5,000 persons per square mile or, if the attached housing development consists of 50 or fewer units, within an incorporated city with a population density of at least 2,500 persons per square mile and a total population of at least 25,000 persons. (F) The attached housing development is located on an infill site as defined in Section 21061.0.5 of the Public Resources Code. (b) At least 10 percent of the units of the attached housing development shall be available at affordable housing cost to very low income households, as defined in Section 50105 of the Health and Safety Code, or at least 20 percent of the units of the attached housing development shall be available at affordable housing cost to lower income households, as defined in Section 50079.5 of the Health and Safety Code, or at least 50 percent of the units of the attached housing development available at affordable housing cost to moderate-income households, consistent with Section 50052.5 of the Health and Safety Code. The developer of the attached housing development shall provide sufficient legal commitments to the local agency to ensure the continued availability and use of the housing units for very low, low-, or moderate-income households for a period of at least 30 years. (c) Nothing in this section shall prohibit a local agency from applying design and site review standards in existence on the date the application was deemed complete. (d) The provisions of this section are independent of any obligation of a jurisdiction pursuant to subdivision (c) of Section 65583 to identify multifamily sites developable by right. (e) This section does not apply to the issuance of coastal development permits pursuant to the California Coastal Act (Division 20 (commencing with Section 30000) of the Public Resources Code). (f) This section does not relieve a public agency from complying with the California Environmental Quality Act (Division 13 (commencing with Section 21000) of the Public Resources Code) or relieve an applicant or public agency from complying with the Subdivision Map Act (Division 2 (commencing with Section 66473)). SB 1069 Page 8 (g) This section is applicable to all cities and counties, including charter cities, because the Legislature finds that the lack of affordable housing is of vital statewide importance, and thus a matter of statewide concern. (h) For purposes of this section, “attached housing development” means a newly constructed or substantially rehabilitated structure containing two or more dwelling units and consisting only of residential units, but does not include a second an accessory dwelling unit, as defined by paragraph (4) of subdivision (h) (j) of Section 65852.2, or the conversion of an existing structure to condominiums. SEC. 4. Section 65852.150 of the Government Code is amended to read: 65852.150. (a) The Legislature finds and declares all of the following: (1) Accessory dwelling units are a valuable form of housing in California. The (2) Legislature finds and declares that second units are a valuable form of housing in California. Second units Accessory dwelling units provide housing for family members, students, the elderly, in-home health care providers, the disabled, and others, at below market prices within existing neighborhoods. Homeowners who create second units benefit from added income, and an increased sense of security. (3) Homeowners who create accessory dwelling units benefit from added income, and an increased sense of security. (4) Allowing accessory dwelling units in single-family or multifamily residential zones provides additional rental housing stock in California. (5) California faces a severe housing crisis. (6) The state is falling far short of meeting current and future housing demand with serious consequences for the state’s economy, our ability to build green infill consistent with state greenhouse gas reduction goals, and the well-being of our citizens, particularly lower and middle-income earners. (7) Accessory dwelling units offer lower cost housing to meet the needs of existing and future residents within existing neighborhoods, while respecting architectural character. (8) Accessory dwelling units are, therefore, an essential component of California’s housing supply. (b) It is the intent of the Legislature that any second-unit ordinances an accessory dwelling unit ordinance adopted by a local agencies have agency has the effect of providing for the creation of second accessory dwelling units and that provisions in these ordinances this ordinance relating to matters including unit size, parking, fees fees, and other requirements, SB 1069 Page 9 are not so arbitrary, excessive, or burdensome so as to unreasonably restrict the ability of homeowners to create second accessory dwelling units in zones in which they are authorized by local ordinance. SEC. 5. Section 65852.2 of the Government Code is amended to read: 65852.2. (a) (1) Any A local agency may, by ordinance, provide for the creation of second accessory dwelling units in single-family and multifamily residential zones. The ordinance may shall do any all of the following: (A) Designate areas within the jurisdiction of the local agency where second accessory dwelling units may be permitted. The designation of areas may be based on criteria, that may include, but are not limited to, the adequacy of water and sewer services and the impact of second accessory dwelling units on traffic flow. flow and public safety. (B) Impose standards on second accessory dwelling units that include, but are not limited to, parking, height, setback, lot coverage, architectural review, maximum size of a unit, and standards that prevent adverse impacts on any real property that is listed in the California Register of Historic Places. (C) Provide that second accessory dwelling units do not exceed the allowable density for the lot upon which the second accessory dwelling unit is located, and that second accessory dwelling units are a residential use that is consistent with the existing general plan and zoning designation for the lot. (2) The ordinance shall not be considered in the application of any local ordinance, policy, or program to limit residential growth. (3) When a local agency receives its first application on or after July 1, 2003, for a permit pursuant to this subdivision, the application shall be considered ministerially without discretionary review or a hearing, notwithstanding Section 65901 or 65906 or any local ordinance regulating the issuance of variances or special use permits. Nothing in this paragraph may be construed to require a local government to adopt or amend an ordinance for the creation of second units. permits, within 120 days of submittal of a complete building permit application. A local agency may charge a fee to reimburse it for costs that it incurs as a result of amendments to this paragraph enacted during the 2001–02 Regular Session of the Legislature, including the costs of adopting or amending any ordinance that provides for the creation of second accessory dwelling units. (b) (1) When a local agency which that has not adopted an ordinance governing second accessory dwelling units in accordance with subdivision (a) or (c) receives its first application on or after July 1, 1983, for a permit pursuant to this subdivision, the local agency shall accept the application and approve or disapprove the application ministerially without discretionary review pursuant to this subdivision unless it adopts an ordinance in accordance SB 1069 Page 10 with subdivision (a) or (c) within 120 days after receiving the application. Notwithstanding Section 65901 or 65906, every local agency shall grant a variance or special use permit for ministerially approve the creation of a second an accessory dwelling unit if the second accessory dwelling unit complies with all of the following: (A) The unit is not intended for sale separate from the primary residence and may be rented. (B) The lot is zoned for single-family or multifamily use. (C) The lot contains an existing single-family dwelling. (D) The second accessory dwelling unit is either attached to the existing dwelling and located within the living area of the existing dwelling or detached from the existing dwelling and located on the same lot as the existing dwelling. (E) The increased floor area of an attached second accessory dwelling unit shall not exceed 30 50 percent of the existing living area. area, with a maximum increase in floor area of 1,200 square feet. (F) The total area of floorspace for a detached second accessory dwelling unit shall not exceed 1,200 square feet. (G) Requirements relating to height, setback, lot coverage, architectural review, site plan review, fees, charges, and other zoning requirements generally applicable to residential construction in the zone in which the property is located. (H) Local building code requirements which that apply to detached dwellings, as appropriate. (I) Approval by the local health officer where a private sewage disposal system is being used, if required. (2) No other local ordinance, policy, or regulation shall be the basis for the denial of a building permit or a use permit under this subdivision. (3) This subdivision establishes the maximum standards that local agencies shall use to evaluate proposed second accessory dwelling units on lots zoned for residential use which that contain an existing single-family dwelling. No additional standards, other than those provided in this subdivision or subdivision (a), shall be utilized or imposed, except that a local agency may require an applicant for a permit issued pursuant to this subdivision to be an owner- occupant. owner-occupant or that the property be used for rentals of terms longer than 30 days. (4) No changes in zoning ordinances or other ordinances or any changes in the general plan shall be required to implement this subdivision. Any A local agency may amend its zoning ordinance or general plan to incorporate the policies, procedures, or other provisions applicable to the creation of second accessory dwelling units if these provisions are consistent with the limitations of this subdivision. SB 1069 Page 11 (5) A second unit which conforms to the requirements of An accessory dwelling unit that conforms to this subdivision shall not be considered to exceed the allowable density for the lot upon which it is located, and shall be deemed to be a residential use which that is consistent with the existing general plan and zoning designations for the lot. The second accessory dwelling units shall not be considered in the application of any local ordinance, policy, or program to limit residential growth. (c) No local agency shall adopt an ordinance which totally precludes second units within single- family or multifamily zoned areas unless the ordinance contains findings acknowledging that the ordinance may limit housing opportunities of the region and further contains findings that specific adverse impacts on the public health, safety, and welfare that would result from allowing second units within single-family and multifamily zoned areas justify adopting the ordinance. (d) (c) A local agency may establish minimum and maximum unit size requirements for both attached and detached second accessory dwelling units. No minimum or maximum size for a second an accessory dwelling unit, or size based upon a percentage of the existing dwelling, shall be established by ordinance for either attached or detached dwellings which that does not otherwise permit at least an efficiency unit to be constructed in compliance with local development standards. Accessory dwelling units shall not be required to provide fire sprinklers if they are not required for the primary residence. (e) (d) Parking requirements for second accessory dwelling units shall not exceed one parking space per unit or per bedroom. Additional parking These spaces may be required provided that a finding is made that the additional parking requirements are directly related to the use of the second unit and are consistent with existing neighborhood standards applicable to existing dwellings. provided as tandem parking on an existing driveway. Off-street parking shall be permitted in setback areas in locations determined by the local agency or through tandem parking, unless specific findings are made that parking in setback areas or tandem parking is not feasible based upon specific site or regional topographical or fire and life safety conditions, or that it is not permitted anywhere else in the jurisdiction. conditions. This subdivision shall not apply to a unit that is described in subdivision (e). (e) Notwithstanding any other law, a local agency, whether or not it has adopted an ordinance governing accessory dwelling units in accordance with subdivision (a), shall not impose parking standards for an accessory dwelling unit in any of the following instances: (1) The accessory dwelling unit is located within one-half mile of public transit. (2) The accessory dwelling unit is located within an architecturally and historically significant historic district. (3) The accessory dwelling unit is part of the existing primary residence or an existing accessory structure. SB 1069 Page 12 (4) When on-street parking permits are required but not offered to the occupant of the accessory dwelling unit. (5) When there is a car share vehicle located within one block of the accessory dwelling unit. (f) Notwithstanding subdivisions (a) to (e), inclusive, a local agency shall ministerially approve an application for a building permit to create within a single-family residential zone one accessory dwelling unit per single-family lot if the unit is contained within the existing space of a single-family residence or accessory structure, has independent exterior access from the existing residence, and the side and rear setbacks are sufficient for fire safety. Accessory dwelling units shall not be required to provide fire sprinklers if they are not required for the primary residence. (f) (g) (1) Fees charged for the construction of second accessory dwelling units shall be determined in accordance with Chapter 5 (commencing with Section 66000). 66000) and Chapter 7 (commencing with Section 66012). (2) Accessory dwelling units shall not be considered new residential uses for the purposes of calculating local agency connection fees or capacity charges for utilities, including water and sewer service. (A) For an accessory dwelling unit described in subdivision (f), a local agency shall not require the applicant to install a new or separate utility connection directly between the accessory dwelling unit and the utility or impose a related connection fee or capacity charge. (B) For an accessory dwelling unit that is not described in subdivision (f), a local agency may require a new or separate utility connection directly between the accessory dwelling unit and the utility. Consistent with Section 66013, the connection may be subject to a connection fee or capacity charge that shall be proportionate to the burden of the proposed accessory dwelling unit, based upon either its size or the number of its plumbing fixtures, upon the water or sewer system. This fee or charge shall not exceed the reasonable cost of providing this service. (g) (h) This section does not limit the authority of local agencies to adopt less restrictive requirements for the creation of second accessory dwelling units. (h) (i) Local agencies shall submit a copy of the ordinances adopted pursuant to subdivision (a) or (c) to the Department of Housing and Community Development within 60 days after adoption. (i) (j) As used in this section, the following terms mean: (1) “Living area,” area” means the interior habitable area of a dwelling unit including basements and attics but does not include a garage or any accessory structure. (2) “Local agency” means a city, county, or city and county, whether general law or chartered. (3) For purposes of this section, “neighborhood” has the same meaning as set forth in Section 65589.5. SB 1069 Page 13 (4) “Second “Accessory dwelling unit” means an attached or a detached residential dwelling unit which provides complete independent living facilities for one or more persons. It shall include permanent provisions for living, sleeping, eating, cooking, and sanitation on the same parcel as the single-family dwelling is situated. A second An accessory dwelling unit also includes the following: (A) An efficiency unit, as defined in Section 17958.1 of Health and Safety Code. (B) A manufactured home, as defined in Section 18007 of the Health and Safety Code. (j) (k) Nothing in this section shall be construed to supersede or in any way alter or lessen the effect or application of the California Coastal Act (Division 20 (commencing with Section 30000) of the Public Resources Code), except that the local government shall not be required to hold public hearings for coastal development permit applications for second accessory dwelling units. SEC. 5.5. Section 65852.2 of the Government Code is amended to read: 65852.2. (a) (1) Any A local agency may, by ordinance, provide for the creation of second accessory dwelling units in single-family and multifamily residential zones. The ordinance may shall do any all of the following: (A) Designate areas within the jurisdiction of the local agency where second accessory dwelling units may be permitted. The designation of areas may be based on criteria, that may include, but are not limited to, the adequacy of water and sewer services and the impact of second accessory dwelling units on traffic flow. flow and public safety. (B) (i) Impose standards on second accessory dwelling units that include, but are not limited to, parking, height, setback, lot coverage, landscape, architectural review, maximum size of a unit, and standards that prevent adverse impacts on any real property that is listed in the California Register of Historic Places. (ii) Notwithstanding clause (i), a local agency may reduce or eliminate parking requirements for any accessory dwelling unit located within its jurisdiction. (C) Provide that second accessory dwelling units do not exceed the allowable density for the lot upon which the second accessory dwelling unit is located, and that second accessory dwelling units are a residential use that is consistent with the existing general plan and zoning designation for the lot. (D) Require the accessory dwelling units to comply with all of the following: (i) The unit is not intended for sale separate from the primary residence and may be rented. SB 1069 Page 14 (ii) The lot is zoned for single-family or multifamily use and contains an existing, single-family dwelling. (iii) The accessory dwelling unit is either attached to the existing dwelling or located within the living area of the existing dwelling or detached from the existing dwelling and located on the same lot as the existing dwelling. (iv) The increased floor area of an attached accessory dwelling unit shall not exceed 50 percent of the existing living area, with a maximum increase in floor area of 1,200 square feet. (v) The total area of floorspace for a detached accessory dwelling unit shall not exceed 1,200 square feet. (vi) No passageway shall be required in conjunction with the construction of an accessory dwelling unit. (vii) No setback shall be required for an existing garage that is converted to a accessory dwelling unit, and a setback of no more than five feet from the side and rear lot lines shall be required for an accessory dwelling unit that is constructed above a garage. (viii) Local building code requirements that apply to detached dwellings, as appropriate. (ix) Approval by the local health officer where a private sewage disposal system is being used, if required. (x) (I) Parking requirements for accessory dwelling units shall not exceed one parking space per unit or per bedroom. These spaces may be provided as tandem parking on an existing driveway. (II) Offstreet parking shall be permitted in setback areas in locations determined by the local agency or through tandem parking, unless specific findings are made that parking in setback areas or tandem parking is not feasible based upon specific site or regional topographical or fire and life safety conditions, or that it is not permitted anywhere else in the jurisdiction. (III) This clause shall not apply to a unit that is described in subdivision (d). (xi) When a garage, carport, or covered parking structure is demolished in conjunction with the construction of an accessory dwelling unit, and the local agency requires that those offstreet parking spaces be replaced, the replacement spaces may be located in any configuration on the same lot as the accessory dwelling unit, including, but not limited to, as covered spaces, uncovered spaces, or tandem spaces, or by the use of mechanical automobile parking lifts. This clause shall not apply to a unit that is described in subdivision (d). (2) The ordinance shall not be considered in the application of any local ordinance, policy, or program to limit residential growth. (3) When a local agency receives its first application on or after July 1, 2003, for a permit pursuant to this subdivision, the application shall be considered ministerially without discretionary review or a hearing, notwithstanding Section 65901 or 65906 or any local SB 1069 Page 15 ordinance regulating the issuance of variances or special use permits. Nothing in this paragraph may be construed to require a local government to adopt or amend an ordinance for the creation of second units. permits, within 120 days after receiving the application. A local agency may charge a fee to reimburse it for costs that it incurs as a result of amendments to this paragraph enacted during the 2001–02 Regular Session of the Legislature, including the costs of adopting or amending any ordinance that provides for the creation of second units. an accessory dwelling unit. (b) (4) (1) An When existing ordinance governing the creation of an accessory dwelling unit by a local agency which has not adopted an ordinance governing second units in accordance with subdivision (a) or (c) receives its first application on or after July 1, 1983, for a permit pursuant to this subdivision, the local agency shall accept the application and approve or disapprove the application ministerially without discretionary review pursuant to this subdivision unless it or an accessory dwelling ordinance adopted by a local agency subsequent to the effective date of the act adding this paragraph shall provide an approval process that includes only ministerial provisions for the approval of accessory dwelling units and shall not include any discretionary processes, provisions, or requirements for those units, except as otherwise provided in this subdivision. In the event that a local agency has an existing accessory dwelling unit ordinance that fails to meet the requirements of this subdivision, that ordinance shall be null and void upon the effective date of the act adding this paragraph and that agency shall thereafter apply the standards established in this subdivision for the approval of accessory dwelling units, unless and until the agency adopts an ordinance in accordance with subdivision (a) or (c) within 120 days after receiving the application. Notwithstanding Section 65901 or 65906, every local agency shall grant a variance or special use permit for the creation of a second unit if the second unit complies with all of the following: that complies with this section. (A) The unit is not intended for sale and may be rented. (B) The lot is zoned for single-family or multifamily use. (C) The lot contains an existing single-family dwelling. (D) The second unit is either attached to the existing dwelling and located within the living area of the existing dwelling or detached from the existing dwelling and located on the same lot as the existing dwelling. (E) The increased floor area of an attached second unit shall not exceed 30 percent of the existing living area. (F) The total area of floorspace for a detached second unit shall not exceed 1,200 square feet. (G) Requirements relating to height, setback, lot coverage, architectural review, site plan review, fees, charges, and other zoning requirements generally applicable to residential construction in the zone in which the property is located. (H) Local building code requirements which apply to detached dwellings, as appropriate. SB 1069 Page 16 (I) Approval by the local health officer where a private sewage disposal system is being used, if required. (2) (5) No other local ordinance, policy, or regulation shall be the basis for the denial of a building permit or a use permit under this subdivision. (3) (6) This subdivision establishes the maximum standards that local agencies shall use to evaluate proposed second units on lots a proposed accessory dwelling unit on a lot zoned for residential use which contain that contains an existing single-family dwelling. No additional standards, other than those provided in this subdivision or subdivision (a), subdivision, shall be utilized or imposed, except that a local agency may require an applicant for a permit issued pursuant to this subdivision to be an owner-occupant. owner-occupant or that the property be used for rentals of terms longer than 30 days. (4) (7) No changes in zoning ordinances or other ordinances or any changes in the general plan shall be required to implement this subdivision. Any A local agency may amend its zoning ordinance or general plan to incorporate the policies, procedures, or other provisions applicable to the creation of second units an accessory dwelling unit if these provisions are consistent with the limitations of this subdivision. (5) (8) A second unit which conforms to the requirements of An accessory dwelling unit that conforms to this subdivision shall be deemed to be an accessory use or an accessory building and shall not be considered to exceed the allowable density for the lot upon which it is located, and shall be deemed to be a residential use which that is consistent with the existing general plan and zoning designations for the lot. The second units accessory dwelling unit shall not be considered in the application of any local ordinance, policy, or program to limit residential growth. (c) (b) No When a local agency shall adopt an ordinance which totally precludes second units within single-family or multifamily zoned areas unless the ordinance contains findings acknowledging that the ordinance may limit housing opportunities of the region and further contains findings that specific adverse impacts on the public health, safety, and welfare that would result from allowing second units within single-family and multifamily zoned areas justify adopting the ordinance. that has not adopted an ordinance governing accessory dwelling units in accordance with subdivision (a) receives its first application on or after July 1, 1983, for a permit to create an accessory dwelling unit pursuant to this subdivision, the local agency shall accept the application and approve or disapprove the application ministerially without discretionary review pursuant to subdivision (a) within 120 days after receiving the application. (d) (c) A local agency may establish minimum and maximum unit size requirements for both attached and detached second accessory dwelling units. No minimum or maximum size for a second an accessory dwelling unit, or size based upon a percentage of the existing dwelling, shall be established by ordinance for either attached or detached dwellings which that does not permit at least an efficiency unit to be constructed in compliance with local development standards. Accessory dwelling units shall not be required to provide fire sprinklers if they are not required for the primary residence. SB 1069 Page 17 (d) Notwithstanding any other law, a local agency, whether or not it has adopted an ordinance governing accessory dwelling units in accordance with subdivision (a), shall not impose parking standards for an accessory dwelling unit in any of the following instances: (1) The accessory dwelling unit is located within one-half mile of public transit. (2) The accessory dwelling unit is located within an architecturally and historically significant historic district. (3) The accessory dwelling unit is part of the existing primary residence or an existing accessory structure. (4) When on-street parking permits are required but not offered to the occupant of the accessory dwelling unit. (5) When there is a car share vehicle located within one block of the accessory dwelling unit. (e) Parking requirements for second units shall not exceed one parking space per unit or per bedroom. Additional parking may be required provided that a finding is made that the additional parking requirements are directly related to the use of the second unit and are consistent with existing neighborhood standards applicable to existing dwellings. Off-street parking shall be permitted in setback areas in locations determined by the local agency or through tandem parking, unless specific findings are made that parking in setback areas or tandem parking is not feasible based upon specific site or regional topographical or fire and life safety conditions, or that it is not permitted anywhere else in the jurisdiction. Notwithstanding subdivisions (a) to (d), inclusive, a local agency shall ministerially approve an application for a building permit to create within a single-family residential zone one accessory dwelling unit per single-family lot if the unit is contained within the existing space of a single-family residence or accessory structure, has independent exterior access from the existing residence, and the side and rear setbacks are sufficient for fire safety. Accessory dwelling units shall not be required to provide fire sprinklers if they are not required for the primary residence. (f) (1) Fees charged for the construction of second accessory dwelling units shall be determined in accordance with Chapter 5 (commencing with Section 66000). 66000) and Chapter 7 (commencing with Section 66012). (2) Accessory dwelling units shall not be considered new residential uses for the purposes of calculating local agency connection fees or capacity charges for utilities, including water and sewer service. (A) For an accessory dwelling unit described in subdivision (e), a local agency shall not require the applicant to install a new or separate utility connection directly between the accessory dwelling unit and the utility or impose a related connection fee or capacity charge. (B) For an accessory dwelling unit that is not described in subdivision (e), a local agency may require a new or separate utility connection directly between the accessory dwelling unit and the utility. Consistent with Section 66013, the connection may be subject to a connection fee or SB 1069 Page 18 capacity charge that shall be proportionate to the burden of the proposed accessory dwelling unit, based upon either its size or the number of its plumbing fixtures, upon the water or sewer system. This fee or charge shall not exceed the reasonable cost of providing this service. (g) This section does not limit the authority of local agencies to adopt less restrictive requirements for the creation of second units. an accessory dwelling unit. (h) Local agencies shall submit a copy of the ordinances ordinance adopted pursuant to subdivision (a) or (c) to the Department of Housing and Community Development within 60 days after adoption. (i) As used in this section, the following terms mean: (1) “Living area,” area” means the interior habitable area of a dwelling unit including basements and attics but does not include a garage or any accessory structure. (2) “Local agency” means a city, county, or city and county, whether general law or chartered. (3) For purposes of this section, “neighborhood” has the same meaning as set forth in Section 65589.5. (4) “Second “Accessory dwelling unit” means an attached or a detached residential dwelling unit which provides complete independent living facilities for one or more persons. It shall include permanent provisions for living, sleeping, eating, cooking, and sanitation on the same parcel as the single-family dwelling is situated. A second An accessory dwelling unit also includes the following: (A) An efficiency unit, as defined in Section 17958.1 of Health and Safety Code. (B) A manufactured home, as defined in Section 18007 of the Health and Safety Code. (5) “Passageway” means a pathway that is unobstructed clear to the sky and extends from a street to one entrance of the accessory dwelling unit. (j) Nothing in this section shall be construed to supersede or in any way alter or lessen the effect or application of the California Coastal Act (Division 20 (commencing with Section 30000) of the Public Resources Code), except that the local government shall not be required to hold public hearings for coastal development permit applications for second accessory dwelling units. SEC. 6. Section 66412.2 of the Government Code is amended to read: 66412.2. This division shall not apply to the construction, financing, or leasing of dwelling units pursuant to Section 65852.1 or second accessory dwelling units pursuant to Section 65852.2, but this division shall be applicable to the sale or transfer, but not leasing, of those units. SB 1069 Page 19 SEC. 7. Section 5.5 of this bill incorporates amendments to Section 65852.2 of the Government Code proposed by both this bill and Assembly Bill 2299. It shall only become operative if (1) both bills are enacted and become effective on or before January 1, 2017, (2) each bill amends Section 65852.2 of the Government Code, and (3) this bill is enacted after Assembly Bill 2299, in which case Section 5 of this bill shall not become operative. SEC. 8. No reimbursement is required by this act pursuant to Section 6 of Article XIII B of the California Constitution because a local agency or school district has the authority to levy service charges, fees, or assessments sufficient to pay for the program or level of service mandated by this act, within the meaning of Section 17556 of the Government Code. AB 2299 Page 1 AB-2299 Land use: housing: 2nd units. (2015-2016) SECTION 1. Section 65852.2 of the Government Code is amended to read: 65852.2. (a) (1) Any A local agency may, by ordinance, provide for the creation of second accessory dwelling units in single-family and multifamily residential zones. The ordinance may shall do any all of the following: (A) Designate areas within the jurisdiction of the local agency where second accessory dwelling units may be permitted. The designation of areas may be based on criteria, that may include, but are not limited to, the adequacy of water and sewer services and the impact of second accessory dwelling units on traffic flow. flow and public safety. (B) Impose standards on second accessory dwelling units that include, but are not limited to, parking, height, setback, lot coverage, landscape, architectural review, maximum size of a unit, and standards that prevent adverse impacts on any real property that is listed in the California Register of Historic Places. (C) Notwithstanding subparagraph (B), a local agency may reduce or eliminate parking requirements for any accessory dwelling unit located within its jurisdiction. (C) (D) Provide that second accessory dwelling units do not exceed the allowable density for the lot upon which the second accessory dwelling unit is located, and that second accessory dwelling units are a residential use that is consistent with the existing general plan and zoning designation for the lot. (E) Require the accessory dwelling units to comply with all of the following: (i) The unit is not intended for sale separate from the primary residence and may be rented. (ii) The lot is zoned for single-family or multifamily use. (iii) The accessory dwelling unit is either attached to the existing dwelling or located within the living area of the existing dwelling or detached from the existing dwelling and located on the same lot as the existing dwelling. (iv) The increased floor area of an attached accessory dwelling unit shall not exceed 50 percent of the existing living area. (v) The total area of floorspace for a detached accessory dwelling unit shall not exceed 1,200 square feet. (vi) No passageway shall be required in conjunction with the construction of an accessory dwelling unit. AB 2299 Page 2 (vii) No setback shall be required for an existing garage that is converted to a accessory dwelling unit, and a setback of no more than five feet from the side and rear lot lines shall be required for an accessory dwelling unit that is constructed above a garage. (viii) Local building code requirements that apply to detached dwellings, as appropriate. (ix) Approval by the local health officer where a private sewage disposal system is being used, if required. (x) (I) Parking requirements for accessory dwelling units shall not exceed one parking space per unit or per bedroom. These spaces may be provided as tandem parking on an existing driveway. (II) Offstreet parking shall be permitted in setback areas in locations determined by the local agency or through tandem parking, unless specific findings are made that parking in setback areas or tandem parking is not feasible based upon specific site or regional topographical or fire and life safety conditions, or that it is not permitted anywhere else in the jurisdiction. (xi) When a garage, carport, or covered parking structure is demolished in conjunction with the construction of an accessory dwelling unit, and the local agency requires that those offstreet parking spaces be replaced, the replacement spaces may be located in any configuration on the same lot as the accessory dwelling unit, including, but not limited to, as covered spaces, uncovered spaces, or tandem spaces, or by the use of mechanical automobile parking lifts. (2) The ordinance shall not be considered in the application of any local ordinance, policy, or program to limit residential growth. (3) When a local agency receives its first application on or after July 1, 2003, for a permit pursuant to this subdivision, the application shall be considered ministerially without discretionary review or a hearing, notwithstanding Section 65901 or 65906 or any local ordinance regulating the issuance of variances or special use permits. Nothing in this paragraph may be construed to require a local government to adopt or amend an ordinance for the creation of second units. permits, within 120 days after receiving the application. A local agency may charge a fee to reimburse it for costs that it incurs as a result of amendments to this paragraph enacted during the 2001–02 Regular Session of the Legislature, including the costs of adopting or amending any ordinance that provides for the creation of second accessory dwelling units. (b) (4) (1) Any When existing ordinance governing the creation of accessory dwelling units by a local agency which has not adopted an ordinance governing second units in accordance with subdivision (a) or (c) receives its first application on or after July 1, 1983, for a permit pursuant to this subdivision, the local agency shall accept the application and approve or disapprove the application ministerially without discretionary review pursuant to this subdivision unless it or any such ordinance adopted by a local agency subsequent to the effective date of the act adding this paragraph shall provide an approval process that includes only ministerial provisions for the approval of accessory dwelling units and shall not include any discretionary processes, provisions, or requirements for those units except as otherwise provided AB 2299 Page 3 in this subdivision. In the event that a local agency has an existing accessory dwelling unit ordinance that fails to meet the requirements of this subdivision, that ordinance shall be null and void upon the effective date of the act adding this paragraph and that agency shall thereafter apply the standards established in this subdivision for the approval of accessory dwelling units, unless and until the agency adopts an ordinance in accordance with subdivision (a) or (c) within 120 days after receiving the application. Notwithstanding Section 65901 or 65906, every local agency shall grant a variance or special use permit for the creation of a second unit if the second unit complies with all of the following: that complies with this section. (A) The unit is not intended for sale and may be rented. (B) The lot is zoned for single-family or multifamily use. (C) The lot contains an existing single-family dwelling. (D) The second unit is either attached to the existing dwelling and located within the living area of the existing dwelling or detached from the existing dwelling and located on the same lot as the existing dwelling. (E) The increased floor area of an attached second unit shall not exceed 30 percent of the existing living area. (F) The total area of floorspace for a detached second unit shall not exceed 1,200 square feet. (G) Requirements relating to height, setback, lot coverage, architectural review, site plan review, fees, charges, and other zoning requirements generally applicable to residential construction in the zone in which the property is located. (H) Local building code requirements which apply to detached dwellings, as appropriate. (I) Approval by the local health officer where a private sewage disposal system is being used, if required. (2) (5) No other local ordinance, policy, or regulation shall be the basis for the denial of a building permit or a use permit under this subdivision. (3) (6) This subdivision establishes the maximum standards that local agencies shall use to evaluate proposed second accessory dwelling units on lots zoned for residential use which that contain an existing single-family dwelling. No additional standards, other than those provided in this subdivision or subdivision (a), subdivision, shall be utilized or imposed, except that a local agency may require an applicant for a permit issued pursuant to this subdivision to be an owner-occupant. (4) (7) No changes in zoning ordinances or other ordinances or any changes in the general plan shall be required to implement this subdivision. Any A local agency may amend its zoning ordinance or general plan to incorporate the policies, procedures, or other provisions applicable to the creation of second accessory dwelling units if these provisions are consistent with the limitations of this subdivision. AB 2299 Page 4 (5) (8) A second unit which conforms to the requirements of An accessory dwelling unit that conforms to this subdivision shall be deemed to be an accessory use or an accessory building and shall not be considered to exceed the allowable density for the lot upon which it is located, and shall be deemed to be a residential use which that is consistent with the existing general plan and zoning designations for the lot. The second accessory dwelling units shall not be considered in the application of any local ordinance, policy, or program to limit residential growth. (c) (b) No When a local agency shall adopt an ordinance which totally precludes second units within single-family or multifamily zoned areas unless the ordinance contains findings acknowledging that the ordinance may limit housing opportunities of the region and further contains findings that specific adverse impacts on the public health, safety, and welfare that would result from allowing second units within single-family and multifamily zoned areas justify adopting the ordinance. that has not adopted an ordinance governing accessory dwelling units in accordance with subdivision (a) receives its first application on or after July 1, 1983, for a permit pursuant to this subdivision, the local agency shall accept the application and approve or disapprove the application ministerially without discretionary review pursuant to subdivision (a) within 120 days after receiving the application. (d) (c) A local agency may establish minimum and maximum unit size requirements for both attached and detached second accessory dwelling units. No minimum or maximum size for a second accessory dwelling unit, or size based upon a percentage of the existing dwelling, shall be established by ordinance for either attached or detached dwellings which that does not permit at least an efficiency unit to be constructed in compliance with local development standards. (e) Parking requirements for second units shall not exceed one parking space per unit or per bedroom. Additional parking may be required provided that a finding is made that the additional parking requirements are directly related to the use of the second unit and are consistent with existing neighborhood standards applicable to existing dwellings. Off-street parking shall be permitted in setback areas in locations determined by the local agency or through tandem parking, unless specific findings are made that parking in setback areas or tandem parking is not feasible based upon specific site or regional topographical or fire and life safety conditions, or that it is not permitted anywhere else in the jurisdiction. (f) (d) Fees charged for the construction of second accessory dwelling units shall be determined in accordance with Chapter 5 (commencing with Section 66000). (g) (e) This section does not limit the authority of local agencies to adopt less restrictive requirements for the creation of second units. accessory dwelling units, provided those requirements comply with subdivision (a). (h) (f) Local agencies shall submit a copy of the ordinances adopted pursuant to subdivision (a) or (c) to the Department of Housing and Community Development within 60 days after adoption. AB 2299 Page 5 (i) (g) As used in this section, the following terms mean: (1) “Living area,” area” means the interior habitable area of a dwelling unit including basements and attics but does not include a garage or any accessory structure. (2) “Local agency” means a city, county, or city and county, whether general law or chartered. (3) For purposes of this section, “neighborhood” has the same meaning as set forth in Section 65589.5. (4) “Second “Accessory dwelling unit” means an attached or a detached residential dwelling unit which provides complete independent living facilities for one or more persons. It shall include permanent provisions for living, sleeping, eating, cooking, and sanitation on the same parcel as the single-family dwelling is situated. A second An accessory dwelling unit also includes the following: (A) An efficiency unit, as defined in Section 17958.1 of Health and Safety Code. (B) A manufactured home, as defined in Section 18007 of the Health and Safety Code. (C) “Passageway” means a pathway that is unobstructed clear to the sky and extends from a street to one entrance of the accessory dwelling unit. (j) (h) Nothing in this section shall be construed to supersede or in any way alter or lessen the effect or application of the California Coastal Act (Division 20 (commencing with Section 30000) of the Public Resources Code), except that the local government shall not be required to hold public hearings for coastal development permit applications for second accessory dwelling units. SEC. 1.5. Section 65852.2 of the Government Code is amended to read: 65852.2. (a) (1) Any A local agency may, by ordinance, provide for the creation of second accessory dwelling units in single-family and multifamily residential zones. The ordinance may shall do any all of the following: (A) Designate areas within the jurisdiction of the local agency where second accessory dwelling units may be permitted. The designation of areas may be based on criteria, that may include, but are not limited to, the adequacy of water and sewer services and the impact of second accessory dwelling units on traffic flow. flow and public safety. (B) (i) Impose standards on second accessory dwelling units that include, but are not limited to, parking, height, setback, lot coverage, landscape, architectural review, maximum size of a unit, and standards that prevent adverse impacts on any real property that is listed in the California Register of Historic Places. AB 2299 Page 6 (ii) Notwithstanding clause (i), a local agency may reduce or eliminate parking requirements for any accessory dwelling unit located within its jurisdiction. (C) Provide that second accessory dwelling units do not exceed the allowable density for the lot upon which the second accessory dwelling unit is located, and that second accessory dwelling units are a residential use that is consistent with the existing general plan and zoning designation for the lot. (D) Require the accessory dwelling units to comply with all of the following: (i) The unit is not intended for sale separate from the primary residence and may be rented. (ii) The lot is zoned for single-family or multifamily use and contains an existing, single-family dwelling. (iii) The accessory dwelling unit is either attached to the existing dwelling or located within the living area of the existing dwelling or detached from the existing dwelling and located on the same lot as the existing dwelling. (iv) The increased floor area of an attached accessory dwelling unit shall not exceed 50 percent of the existing living area, with a maximum increase in floor area of 1,200 square feet. (v) The total area of floorspace for a detached accessory dwelling unit shall not exceed 1,200 square feet. (vi) No passageway shall be required in conjunction with the construction of an accessory dwelling unit. (vii) No setback shall be required for an existing garage that is converted to a accessory dwelling unit, and a setback of no more than five feet from the side and rear lot lines shall be required for an accessory dwelling unit that is constructed above a garage. (viii) Local building code requirements that apply to detached dwellings, as appropriate. (ix) Approval by the local health officer where a private sewage disposal system is being used, if required. (x) (I) Parking requirements for accessory dwelling units shall not exceed one parking space per unit or per bedroom. These spaces may be provided as tandem parking on an existing driveway. (II) Offstreet parking shall be permitted in setback areas in locations determined by the local agency or through tandem parking, unless specific findings are made that parking in setback areas or tandem parking is not feasible based upon specific site or regional topographical or fire and life safety conditions, or that it is not permitted anywhere else in the jurisdiction. (III) This clause shall not apply to a unit that is described in subdivision (d). AB 2299 Page 7 (xi) When a garage, carport, or covered parking structure is demolished in conjunction with the construction of an accessory dwelling unit, and the local agency requires that those offstreet parking spaces be replaced, the replacement spaces may be located in any configuration on the same lot as the accessory dwelling unit, including, but not limited to, as covered spaces, uncovered spaces, or tandem spaces, or by the use of mechanical automobile parking lifts. This clause shall not apply to a unit that is described in subdivision (d). (2) The ordinance shall not be considered in the application of any local ordinance, policy, or program to limit residential growth. (3) When a local agency receives its first application on or after July 1, 2003, for a permit pursuant to this subdivision, the application shall be considered ministerially without discretionary review or a hearing, notwithstanding Section 65901 or 65906 or any local ordinance regulating the issuance of variances or special use permits. Nothing in this paragraph may be construed to require a local government to adopt or amend an ordinance for the creation of second units. permits, within 120 days after receiving the application. A local agency may charge a fee to reimburse it for costs that it incurs as a result of amendments to this paragraph enacted during the 2001–02 Regular Session of the Legislature, including the costs of adopting or amending any ordinance that provides for the creation of second units. an accessory dwelling unit. (b) (4) (1) An When existing ordinance governing the creation of an accessory dwelling unit by a local agency which has not adopted an ordinance governing second units in accordance with subdivision (a) or (c) receives its first application on or after July 1, 1983, for a permit pursuant to this subdivision, the local agency shall accept the application and approve or disapprove the application ministerially without discretionary review pursuant to this subdivision unless it or an accessory dwelling ordinance adopted by a local agency subsequent to the effective date of the act adding this paragraph shall provide an approval process that includes only ministerial provisions for the approval of accessory dwelling units and shall not include any discretionary processes, provisions, or requirements for those units, except as otherwise provided in this subdivision. In the event that a local agency has an existing accessory dwelling unit ordinance that fails to meet the requirements of this subdivision, that ordinance shall be null and void upon the effective date of the act adding this paragraph and that agency shall thereafter apply the standards established in this subdivision for the approval of accessory dwelling units, unless and until the agency adopts an ordinance in accordance with subdivision (a) or (c) within 120 days after receiving the application. Notwithstanding Section 65901 or 65906, every local agency shall grant a variance or special use permit for the creation of a second unit if the second unit complies with all of the following: that complies with this section. (A) The unit is not intended for sale and may be rented. (B) The lot is zoned for single-family or multifamily use. (C) The lot contains an existing single-family dwelling. AB 2299 Page 8 (D) The second unit is either attached to the existing dwelling and located within the living area of the existing dwelling or detached from the existing dwelling and located on the same lot as the existing dwelling. (E) The increased floor area of an attached second unit shall not exceed 30 percent of the existing living area. (F) The total area of floorspace for a detached second unit shall not exceed 1,200 square feet. (G) Requirements relating to height, setback, lot coverage, architectural review, site plan review, fees, charges, and other zoning requirements generally applicable to residential construction in the zone in which the property is located. (H) Local building code requirements which apply to detached dwellings, as appropriate. (I) Approval by the local health officer where a private sewage disposal system is being used, if required. (2) (5) No other local ordinance, policy, or regulation shall be the basis for the denial of a building permit or a use permit under this subdivision. (3) (6) This subdivision establishes the maximum standards that local agencies shall use to evaluate proposed second units on lots a proposed accessory dwelling unit on a lot zoned for residential use which contain that contains an existing single-family dwelling. No additional standards, other than those provided in this subdivision or subdivision (a), subdivision, shall be utilized or imposed, except that a local agency may require an applicant for a permit issued pursuant to this subdivision to be an owner-occupant. owner-occupant or that the property be used for rentals of terms longer than 30 days. (4) (7) No changes in zoning ordinances or other ordinances or any changes in the general plan shall be required to implement this subdivision. Any A local agency may amend its zoning ordinance or general plan to incorporate the policies, procedures, or other provisions applicable to the creation of second units an accessory dwelling unit if these provisions are consistent with the limitations of this subdivision. (5) (8) A second unit which conforms to the requirements of An accessory dwelling unit that conforms to this subdivision shall be deemed to be an accessory use or an accessory building and shall not be considered to exceed the allowable density for the lot upon which it is located, and shall be deemed to be a residential use which that is consistent with the existing general plan and zoning designations for the lot. The second units accessory dwelling unit shall not be considered in the application of any local ordinance, policy, or program to limit residential growth. (c) (b) No When a local agency shall adopt an ordinance which totally precludes second units within single-family or multifamily zoned areas unless the ordinance contains findings acknowledging that the ordinance may limit housing opportunities of the region and further contains findings that specific adverse impacts on the public health, safety, and welfare that AB 2299 Page 9 would result from allowing second units within single-family and multifamily zoned areas justify adopting the ordinance. that has not adopted an ordinance governing accessory dwelling units in accordance with subdivision (a) receives its first application on or after July 1, 1983, for a permit to create an accessory dwelling unit pursuant to this subdivision, the local agency shall accept the application and approve or disapprove the application ministerially without discretionary review pursuant to subdivision (a) within 120 days after receiving the application. (d) (c) A local agency may establish minimum and maximum unit size requirements for both attached and detached second accessory dwelling units. No minimum or maximum size for a second an accessory dwelling unit, or size based upon a percentage of the existing dwelling, shall be established by ordinance for either attached or detached dwellings which that does not permit at least an efficiency unit to be constructed in compliance with local development standards. Accessory dwelling units shall not be required to provide fire sprinklers if they are not required for the primary residence. (d) Notwithstanding any other law, a local agency, whether or not it has adopted an ordinance governing accessory dwelling units in accordance with subdivision (a), shall not impose parking standards for an accessory dwelling unit in any of the following instances: (1) The accessory dwelling unit is located within one-half mile of public transit. (2) The accessory dwelling unit is located within an architecturally and historically significant historic district. (3) The accessory dwelling unit is part of the existing primary residence or an existing accessory structure. (4) When on-street parking permits are required but not offered to the occupant of the accessory dwelling unit. (5) When there is a car share vehicle located within one block of the accessory dwelling unit. (e) Parking requirements for second units shall not exceed one parking space per unit or per bedroom. Additional parking may be required provided that a finding is made that the additional parking requirements are directly related to the use of the second unit and are consistent with existing neighborhood standards applicable to existing dwellings. Off-street parking shall be permitted in setback areas in locations determined by the local agency or through tandem parking, unless specific findings are made that parking in setback areas or tandem parking is not feasible based upon specific site or regional topographical or fire and life safety conditions, or that it is not permitted anywhere else in the jurisdiction. Notwithstanding subdivisions (a) to (d), inclusive, a local agency shall ministerially approve an application for a building permit to create within a single-family residential zone one accessory dwelling unit per single-family lot if the unit is contained within the existing space of a single-family residence or accessory structure, has independent exterior access from the existing residence, and the side and rear setbacks are sufficient for fire safety. Accessory dwelling units shall not be required to provide fire sprinklers if they are not required for the primary residence. AB 2299 Page 10 (f) (1) Fees charged for the construction of second accessory dwelling units shall be determined in accordance with Chapter 5 (commencing with Section 66000). 66000) and Chapter 7 (commencing with Section 66012). (2) Accessory dwelling units shall not be considered new residential uses for the purposes of calculating local agency connection fees or capacity charges for utilities, including water and sewer service. (A) For an accessory dwelling unit described in subdivision (e), a local agency shall not require the applicant to install a new or separate utility connection directly between the accessory dwelling unit and the utility or impose a related connection fee or capacity charge. (B) For an accessory dwelling unit that is not described in subdivision (e), a local agency may require a new or separate utility connection directly between the accessory dwelling unit and the utility. Consistent with Section 66013, the connection may be subject to a connection fee or capacity charge that shall be proportionate to the burden of the proposed accessory dwelling unit, based upon either its size or the number of its plumbing fixtures, upon the water or sewer system. This fee or charge shall not exceed the reasonable cost of providing this service. (g) This section does not limit the authority of local agencies to adopt less restrictive requirements for the creation of second units. an accessory dwelling unit. (h) Local agencies shall submit a copy of the ordinances ordinance adopted pursuant to subdivision (a) or (c) to the Department of Housing and Community Development within 60 days after adoption. (i) As used in this section, the following terms mean: (1) “Living area,” area” means the interior habitable area of a dwelling unit including basements and attics but does not include a garage or any accessory structure. (2) “Local agency” means a city, county, or city and county, whether general law or chartered. (3) For purposes of this section, “neighborhood” has the same meaning as set forth in Section 65589.5. (4) “Second “Accessory dwelling unit” means an attached or a detached residential dwelling unit which provides complete independent living facilities for one or more persons. It shall include permanent provisions for living, sleeping, eating, cooking, and sanitation on the same parcel as the single-family dwelling is situated. A second An accessory dwelling unit also includes the following: (A) An efficiency unit, as defined in Section 17958.1 of Health and Safety Code. (B) A manufactured home, as defined in Section 18007 of the Health and Safety Code. (5) “Passageway” means a pathway that is unobstructed clear to the sky and extends from a street to one entrance of the accessory dwelling unit. AB 2299 Page 11 (j) Nothing in this section shall be construed to supersede or in any way alter or lessen the effect or application of the California Coastal Act (Division 20 (commencing with Section 30000) of the Public Resources Code), except that the local government shall not be required to hold public hearings for coastal development permit applications for second accessory dwelling units. SEC. 2. Section 1.5 of this bill incorporates amendments to Section 65852.2 of the Government Code proposed by both this bill and Senate Bill 1069. It shall only become operative if (1) both bills are enacted and become effective on or before January 1, 2017, (2) each bill amends Section 65852.2 of the Government Code, and (3) this bill is enacted after Senate Bill 1069, in which case Section 1 of this bill shall not become operative. SEC. 3. No reimbursement is required by this act pursuant to Section 6 of Article XIII B of the California Constitution because a local agency or school district has the authority to levy service charges, fees, or assessments sufficient to pay for the program or level of service mandated by this act, within the meaning of Section 17556 of the Government Code. AB 2406 Page 1 AB-2406 Housing: junior accessory dwelling units. (2015-2016) SECTION 1. Section 65852.22 is added to the Government Code, immediately following Section 65852.2, to read: 65852.22. (a) Notwithstanding Section 65852.2, a local agency may, by ordinance, provide for the creation of junior accessory dwelling units in single-family residential zones. The ordinance may require a permit to be obtained for the creation of a junior accessory dwelling unit, and shall do all of the following: (1) Limit the number of junior accessory dwelling units to one per residential lot zoned for single- family residences with a single-family residence already built on the lot. (2) Require owner-occupancy in the single-family residence in which the junior accessory dwelling unit will be permitted. The owner may reside in either the remaining portion of the structure or the newly created junior accessory dwelling unit. Owner-occupancy shall not be required if the owner is another governmental agency, land trust, or housing organization. (3) Require the recordation of a deed restriction, which shall run with the land, shall be filed with the permitting agency, and shall include both of the following: (A) A prohibition on the sale of the junior accessory dwelling unit separate from the sale of the single-family residence, including a statement that the deed restriction may be enforced against future purchasers. (B) A restriction on the size and attributes of the junior accessory dwelling unit that conforms with this section. (4) Require a permitted junior accessory dwelling unit to be constructed within the existing walls of the structure, and require the inclusion of an existing bedroom. (5) Require a permitted junior accessory dwelling to include a separate entrance from the main entrance to the structure, with an interior entry to the main living area. A permitted junior accessory dwelling may include a second interior doorway for sound attenuation. (6) Require the permitted junior accessory dwelling unit to include an efficiency kitchen, which shall include all of the following: (A) A sink with a maximum waste line diameter of 1.5 inches. (B) A cooking facility with appliances that do not require electrical service greater than 120 volts, or natural or propane gas. (C) A food preparation counter and storage cabinets that are of reasonable size in relation to the size of the junior accessory dwelling unit. AB 2406 Page 2 (b) (1) An ordinance shall not require additional parking as a condition to grant a permit. (2) This subdivision shall not be interpreted to prohibit the requirement of an inspection, including the imposition of a fee for that inspection, to determine whether the junior accessory dwelling unit is in compliance with applicable building standards. (c) An application for a permit pursuant to this section shall, notwithstanding Section 65901 or 65906 or any local ordinance regulating the issuance of variances or special use permits, be considered ministerially, without discretionary review or a hearing. A permit shall be issued within 120 days of submission of an application for a permit pursuant to this section. A local agency may charge a fee to reimburse the local agency for costs incurred in connection with the issuance of a permit pursuant to this section. (d) For the purposes of any fire or life protection ordinance or regulation, a junior accessory dwelling unit shall not be considered a separate or new dwelling unit. This section shall not be construed to prohibit a city, county, city and county, or other local public entity from adopting an ordinance or regulation relating to fire and life protection requirements within a single- family residence that contains a junior accessory dwelling unit so long as the ordinance or regulation applies uniformly to all single-family residences within the zone regardless of whether the single-family residence includes a junior accessory dwelling unit or not. (e) For the purposes of providing service for water, sewer, or power, including a connection fee, a junior accessory dwelling unit shall not be considered a separate or new dwelling unit. (f) This section shall not be construed to prohibit a local agency from adopting an ordinance or regulation, related to parking or a service or a connection fee for water, sewer, or power, that applies to a single-family residence that contains a junior accessory dwelling unit, so long as that ordinance or regulation applies uniformly to all single-family residences regardless of whether the single-family residence includes a junior accessory dwelling unit. (g) For purposes of this section, the following terms have the following meanings: (1) “Junior accessory dwelling unit” means a unit that is no more than 500 square feet in size and contained entirely within an existing single-family structure. A junior accessory dwelling unit may include separate sanitation facilities, or may share sanitation facilities with the existing structure. (2) “Local agency” means a city, county, or city and county, whether general law or chartered. SEC. 2. This act is an urgency statute necessary for the immediate preservation of the public peace, health, or safety within the meaning of Article IV of the Constitution and shall go into immediate effect. The facts constituting the necessity are: In order to allow local jurisdictions the ability to promulgate ordinances that create secure income for homeowners and secure housing for renters, at the earliest possible time, it is necessary for this act to take effect immediately. Planning & Transportation Commission Staff Report (ID # 7368) Report Type: Action Items Meeting Date: 11/30/2016 City of Palo Alto Planning & Community Environment 250 Hamilton Avenue Palo Alto, CA 94301 (650) 329-2442 Summary Title: Accessory Dwelling Unit Ordinance Title: The Planning and Transportation Commission will Consider a Recommendation to the City Council for Adoption of an Ordinance to Update the City's Municipal Code Sections Regarding Accessory Dwelling Units (Second Dwelling Units) for Compliance with Recent State Laws and Other Changes to Encourage Construction of Accessory Dwelling Units. The Proposed Ordinance is Exempt from the California Environmental Quality Act (CEQA) per Sections 15301 and 15303. From: Hillary Gitelman Recommendation Staff recommends that the Planning and Transportation Commission (PTC) adopt a motion recommending that the City Council adopt an ordinance (Attachment A) amending Title 18 (zoning) of the Palo Alto Municipal Code to implement new State law requirements regarding Accessory Dwelling Units and Junior Accessory Dwelling Units and to make other changes encouraging construction of such units and finding the ordinance exempt from review under the California Environmental Quality Act (CEQA). Executive Summary In October 2015, the City Council directed the PTC to review the existing Accessory Dwelling Unit/Second Dwelling Unit regulations and recommend ways to increase construction. Subsequent to the Council’s direction, the PTC conducted two study sessions, enabling extensive dialog regarding potential code changes and the impacts and benefits that might result. Following the study sessions, the PTC anticipated that staff would return to the Commission with further analysis of potential code changes and a draft ordinance for the Commission’s consideration. While staff’s analysis was ongoing, the State of California adopted three laws regarding City of Palo Alto Planning & Community Environment Department Page 2 Accessory Dwelling Units (ADUs) and Junior Accessory Dwelling Units (JADUs): SB 1069, AB 2299 and AB 2406. In response to this, staff has prepared a draft ordinance (Attachment A) that would bring the City’s Municipal Code into compliance with the new ADU legislation and allow JADUs, as allowed for under AB2406. Highlights of the draft ordinance include:  Changing the terminology throughout the municipal code to use “accessory dwelling units” and “junior accessory units” rather than “second units;”  Repealing Section 18.10.070,18.12.070 and 18.28.070 (regarding Second Dwelling Units in the RE, R-2, RMD,R-1 and OS Districts) and adding a new Section 18.42.040 with development standards applicable to accessory dwelling units and junior accessory dwelling units in all zoning districts;  Adjusting parking and setback requirements to the minimum extent necessary to comply with the State laws;  Maintaining existing minimum lot size requirements for accessory dwelling units;  Allowing junior accessory dwelling units, which involve conversion of existing building space to a small living unit, without a minimum lot size requirement; and  Ensuring that any residential lot may only have one accessory or junior accessory unit per parcel (and not one of each). The PTC could consider additional changes to the Municipal Code (i.e. changes not required by State law) affecting parking and setback requirements, minimum lot sizes, and other standards, and could also consider a different stance on junior accessory units, which are enabled but not required by State law. This staff report provides an analysis of potential changes to the minimum lot sizes for the PTC’s consideration, and the draft ordinance is annotated to explain where local discretion is available. Background In October 2015, the City Council in a Colleagues Memo directed the PTC to review the existing zoning regulations on Accessory Dwelling Units (ADUs), which are referred to as second dwelling units in the Municipal Code, and recommend ways to increase ADU construction. The City Council also directed PTC to consider ways to bring existing non-compliant ADUs into compliance and provide any other relevant recommendations. Palo Alto’s high housing cost, demand for a variety of housing types, and change in demographics with a rise in an aging population, has encouraged the City to find opportunities to increase more affordable housing options for its residents. The Colleagues Memo proposes ADUs as a potential solution to these problems. The City Council was supportive of the facilitation of construction of ADUs, provided that impacts on community character and neighborhood design standards are minimized. The retention of the physical and social character of the existing residential neighborhoods was also deemed to be important. To date, the PTC had two study sessions on the item (January 27, 2016 Staff Report ID# 6462 and July 27, 2016 Staff Report ID #6944) on this subject. City of Palo Alto Planning & Community Environment Department Page 3 PTC Study Sessions At the January 27, 2016 PTC Study Session, the PTC was provided with a brief history of Municipal Code changes made during the 2006 Zoning code update and the potential benefits and impacts of ADUs in Palo Alto. This meeting was well attended by several community members who provided detailed input. Some members of the public stated that it was important to balance the impacts of second units in single family zoned areas, while other said it was important to increase second unit production to meet the community’s affordable housing needs. The PTC discussed the existing development standards of the Palo Alto Municipal Code (PAMC Sections 18.12.070 and 18.10.070) and identified City regulations which can act as potential constraints in the construction of ADUs. The PTC also reviewed some of the common practices and regulations followed by some Bay Area cities. The following is the link to PTC staff report and meeting minutes of January 27, 2016 meeting. Staff Report: https://www.cityofpaloalto.org/civicax/filebank/documents/50714 Meeting Minutes: http://www.cityofpaloalto.org/civicax/filebank/documents/51618 At the second study session held on July 27, 2016 staff provided the PTC with an update on the research that was requested by the PTC. The report also included analysis of the constraints posed by existing zoning regulations that discouraged construction of new second units. At this meeting, the PTC requested staff to gather information on impacts of ADU ordinance changes in cities that have updated their ordinance. The PTC also requested staff to perform a sensitivity analysis of the effects of lot size change, parking regulation change, and adjustment of permit fee regulations on ADU construction. The PTC directed staff to return with a draft ordinance to encourage ADU construction concurrently with the additional data that was requested. Following is the link to the second Study Session and meeting minutes. Staff Report: http://www.cityofpaloalto.org/civicax/filebank/documents/53216 Meeting Minutes: http://www.cityofpaloalto.org/civicax/filebank/documents/53622 State Legislation on ADUs The State’s Government Code Section 65852.2 Chapter 1062 (a.k.a. Second-Unit Law) was enacted in 1982 and has been amended four times since then (1986, 1990, 1994 and 2002) to encourage the creation of second-units while maintaining local flexibility for unique circumstances and conditions. The State recognizes there is a housing crisis and has adopted legislation to address it. The Second-Unit Law imposes standards intended to create greater flexibility to encourage construction while also requiring a ministerial process for the approval of such units. Specifically, the 2002 update of the Second-Unit Law (Government Code Section 65852.2(a)(3)) required all local agencies to review second-unit permit applications ministerially without discretionary review or a public hearing. The city’s current regulations comply with this State requirement. SB 1069 and AB 2299: City of Palo Alto Planning & Community Environment Department Page 4 Concurrent with the City’s efforts on ADUs, the State recently adopted two laws intended to further ease the regulatory burdens of existing local laws and remove barriers that have discouraged homeowners from constructing second units. In September 2016, Governor Jerry Brown signed the two bills which will take effect on January 1, 2017. If a jurisdiction does not amend their local codes in compliance with these bills, then, the State laws will supersede local laws. A short summary of the two bills is provided below. SB 1069 and AB 2299 were introduced by Senator Wieckowski and Assembly Member Bloom in February of 2016 to amend different sections of the Second Unit Law.1 The bills officially designated second dwelling units as Accessory Dwelling Units and amend the State government code accordingly. The two bills include amendments related to maximum unit size, parking, setbacks, and separation between the primary and the accessory dwelling unit. The bills also include changes regarding application of building codes and utility connection fees or charges. This report focuses on changes required for the zoning code or Palo Alto Municipal Code Chapter 18. The changes related to utility fees and the building code will be addressed through a separate process. More information on SB 1069 and AB 2299 can be found through the following links: https://leginfo.legislature.ca.gov/faces/billCompareClient.xhtml?bill_id=201520160SB1069 https://leginfo.legislature.ca.gov/faces/billNavClient.xhtml?bill_id=201520160AB2299 Junior Accessory Dwelling Units The State also adopted Assembly Bill 2406, introduced by Assembly Member Thurmond and Assembly Member Levine, governing a different type of an accessory dwelling unit called a “junior accessory dwelling unit.” This bill adds a new section on Junior Accessory Dwelling Units (JADU)2 to the Government Code Section 65852.2. A JADU is defined as the conversion of an existing bedroom within a home containing a kitchenette and not exceeding 500 square feet. The bill authorizes a local agency to create an ordinance on JADUs, in single-family residential zones. If a City chooses to allow JADUs, the bill would require the ordinance to include, among other things, standards for the creation of a JADU, processing regulations and occupancy requirements. The bill would prohibit the local ordinances from requiring, as a condition of granting a permit, water and sewer connection fees or additional parking requirements. Governor Brown on September 28, 2016 signed this bill and it takes effect immediately as an urgency statute. More information on AB 2406 is available here: https://leginfo.legislature.ca.gov/faces/billNavClient.xhtml?bill_id=201520160AB2406 Discussion 1 Last minute changes were made to the final version of the bill creating some potential ambiguities and it is expected that the Housing and Community Development Commission (HCD) will be issuing some clarifying guidelines. 2 “Junior accessory dwelling unit” means a unit that is no more than 500 square feet in size and contained entirely within an existing single-family structure. A junior accessory dwelling unit may include separate sanitation facilities, or may share sanitation facilities with the existing structure. City of Palo Alto Planning & Community Environment Department Page 5 Consistent with Council and PTC direction as well as the new State legislation, staff is requesting that the PTC review and recommend adoption of an ordinance that would encourage construction of ADUs by adopting the State mandated changes and modifying the Municipal Code to allow JADUs. The draft ordinance included as Attachment A would bring the City’s Municipal Code into compliance with State requirements and adopt changes that would immediately reduce constraints affecting the construction of second units. The PTC could recommend the ordinance as drafted, or with specific additions or changes, as long as the recommended adjustments do not conflict with State law. The attached draft ordinance structure repeals the existing ADU regulations in each of the relevant residential zones that currently permit second units (R1, RE, R2, RMD and OS) and creates a new chapter 18.42.040 titled “Accessory and Junior Dwelling Units.” The PAMC permits single family uses in the multi-family zoning districts, when the R-1 regulations would apply. This new chapter consolidates all ADU and JADU regulations in one place. The new chapter carries forward all existing local ADU development standards that do not conflict with State law, and adds the State law requirements. The section below focuses on the required ADU changes and the proposed JADU amendments. It does not focus on the other parts of the new laws that the City is not required or proposing to change, which include maximum size, height and setbacks, except for setbacks for garage conversions. For example, the City can regulate the minimum and maximum size of ADUs as long as the maximum size does not exceed 1,200 square feet (sf). Because the PAMC already complies with a smaller maximum size, no changes are proposed regarding the maximum size of ADUs. Staff has also identified additional optional changes to the PAMC that might encourage construction of new ADUs. If the PTC is supportive of these optional changes, staff will modify the draft ordinance accordingly prior to bringing the item to the City Council for their consideration next February. Changes for Compliance to the State Legislation for ADUs SB 1069 and AB 2299 require that our existing Municipal Code be amended in regards to parking, conversion of existing garages located within setbacks, and the maximum percentage that an ADU may occupy of the existing living area. All other local requirements, including lot coverage and floor area maximums, may remain in place. 1. Proposed changes to the parking requirements Palo Alto’s existing parking standards has been identified as one of the prime constraints in the construction of ADUs. At the PTC study session held in January, several members of the public identified parking to be the single biggest impediment preventing construction of new ADUs. The Municipal Code currently requires two parking spaces, of which one must be covered, for each new unit. The spaces can be provided as tandem parking and within the rear or side setbacks, as long as is outside the front setback and at least ten feet from the street side property line for corner lots. The new State laws generally reduce parking requirements and eliminate them for certain types of ADUs, particularly for units that are in existing structures and those near transit. This change may encourage owners to build smaller one bedroom units. The following changes to parking requirements for ADUs are proposed: City of Palo Alto Planning & Community Environment Department Page 6 A. Parking requirements for ADUs shall not exceed one parking space per unit or per bedroom, whichever is greater. B. Spaces may be provided as tandem parking, may be located on an existing driveway, and may be located in side and rear setbacks, but not a front setback. For corner lots, parking may be located within the corner street side setback if located at least 10 feet from the property line. C. Notwithstanding the above, no parking standards would be imposed on an ADU if any of the following instances are met: (1) The accessory dwelling unit is located within one-half mile of public transit. Public transit shall include a rail transit station and a bus stop with two or more lines that provide transit service at 15 minute intervals or better during peak commute periods. (2) The accessory dwelling unit is located within an architecturally and historically significant local, state or nationally designated historic district. (3) The accessory dwelling unit is part of the existing primary residence or an existing accessory structure. (4) When on-street parking permits are required but not offered to the occupant of the accessory dwelling unit. (5) When there is a car share vehicle located within one block of the accessory dwelling unit, where the car share vehicle is part of an established program available to the public. 2. Setbacks in the Case of Conversion or Additions to Existing Garages The new State laws stipulate that no setback shall be required for an existing garage that is converted to an ADU, and a setback of no more than five feet from the side and rear lot lines shall be required for an ADU that is constructed above a garage. Palo Alto Municipal Code sections 18.12.070, 18.10.070 and 18.28.070 require a minimum rear setback of 20 feet and interior side yard setback of six to eight feet for all R-1, R-2 and RMD zoned properties. For RE and OS the requirement is higher; 30 feet rear yard and 15 feet interior side yard setback. However, accessory structures (non-habitable), including garages are permitted within the rear and side setbacks, if located at least 75 feet from the front property line and 20 feet from the street side property line. The proposed ordinance amends our Code to comply with State law allowing conversion of existing garages to ADUs with no requirements for setbacks. This provision would only apply if an existing garage is not needed as required parking for the principal dwelling unit. The State law also permits construction of an ADU above a garage with a maximum side and rear property setback of five feet. The proposed ordinance changes the setback requirements to be consistent with State law. However, since State law allows the City to regulate ADU height and the R-1 district currently prohibits second story ADU’s this state law change is not expected City of Palo Alto Planning & Community Environment Department Page 7 to result in new units in the R-1 neighborhood. In districts allowing for second story ADU’s (i.e. in RE and OS districts), this change could result in additional units. 3. Maximum Percentage An ADU May Occupy of Living Area The recent state law established a maximum size and the percentage an ADU may occupy of the existing living area. The City’s current code is below the 1,200 sf maximum, so no changes are proposed to that requirement. However, the additional requirement that an ADU may not occupy more than 50% of existing living space has been incorporated in Section 18.42.040(a)(7)(iii), consistent with State law. JADU Ordinance Change Assembly Bill 2406 allows local jurisdiction to adopt an ordinance to permit JADUs. This is not a requirement, but an option, and was adopted by the State legislature after some communities found the addition of JADUs to be an effective way to add units without increasing the intensity of development (since existing building space is converted to create the unit). Staff is proposing to amend the PAMC to permit these smaller units as a way to increase the number of units with minimal impact on neighborhoods since JADUs would be limited to 500 square feet and contained entirely within an existing single-family structure. JADUs would not be subject to a minimum lot size, and thus would be permitted in a larger number of properties, however the ordinance specifies that a property would be allowed either one ADU or one JADU. At no point would a property be allowed more than two units regardless of lot size and other requirements. Permitting the construction of JADUs represents a significant policy shift and the PTC should consider whether they wish to include JADUs in their recommendation. Currently, the Municipal Code only allows ADUs on parcels that are at least 35% larger than the minimum lot size. The suggested provisions regarding JADUs would not only allow some form of second unit on all single family parcels, it would also not require any additional parking for these units, which would be added within existing building space. The thinking is that JADUs would not increase the occupant capacity of a home or impact infrastructure because it would not increase the size of the structure. Additionally, they would provide an opportunity for seniors to age in place by generating income from rentals or by providing a living space for caregivers or family. Additional ADU Requirements In addition to conforming to the State law, staff also is recommending additional changes to both remove development constraints and to avoid neighborhood impacts. These changes include:  Clarification that only one ADU or JADU can be constructed on a lot;  Elimination of current code’s 10 foot separation buffer between existing single family home and detached ADU; City of Palo Alto Planning & Community Environment Department Page 8  Clarification that ADU may not be sold separately from the unit;  Requirement that either ADU or single family home be owner occupied; and  Requirement that ADU’s not be rented for periods of less than 30 days. Analysis of the Minimum Lot Size Requirement As discussed by the PTC in both the study sessions, Palo Alto’s existing lot size requirement to construct an ADU is the second most significant constraint in construction of new ADUs after parking. The Municipal Code requires that a lot be at least 35% larger than the minimum lot size of the district. To get a better understanding of the potential number of eligible parcels that can accommodate ADUs, the PTC suggested staff to develop scenarios by lowering the existing minimum lot size requirement at 500 sf or five percent intervals. The PTC also suggested studying only those residential parcels with excess of 450 sf of remaining FAR. This would provide a more realistic estimate of the actual number of second units that can be built in future years. The Palo Alto Municipal Code has different minimum lot size requirement for different zone types including all subdistricts of R-1, R-2, RE RMD and OS. Furthermore, the lot size requirement varies based on the lot type; regular lots and flag lots3. The following table describes the existing Municipal code requirements for lot sizes in all zones that permit second units. Table 1: Existing Minimum Lot Size Requirements for R-1 R-2, RE, RMD and OS Zones Minimum Site Area Requirement R-1, R-1 (7,000), R-1 (8,000), R-1 (10,000), R-1 (20,000) R-E R-2 RMD OS This applies for both attached and detached units Not more than one attached or detached second dwelling units shall be allowed on a lot 35% greater than the minimum lot size for the district. R-1: 8,100 sf R-1 (7,000): 9,450 sf R-1 (8,000): 10,800 sf R-1 (10,000): 13,500 sf R-1 (20,000): 27,000 sf (See Table 5 of 18.12.070). Flag Lot specifications according to Section 21.20.301 of Subdivision Ord. In the RE district, the minimum lot size for a second dwelling unit is one acre. Provided, for flag lots, the minimum lot size shall be 35% greater than the minimum lot size established by Section 21.20.301 of the Subdivision Ordinance. Second dwelling units are permitted that meet lot size requirements. But for R-2 zoned lots of 6,000 square feet or greater, but less than 7,500 square feet, a second dwelling unit with a max size of 450 sf is permitted subject to R-1 regulations Second dwelling units are permitted in lots with a minimum of 5,000 square feet or greater In the OS zone Second dwelling shall only be permitted on sites with a minimum site area of 10 acres Source: City of Palo Alto Planning Department, November 2016 Below is a Parcel Size Analysis based on the PTC’s earlier suggestion. For the purpose of this analysis, all substandard lots4 in each zoning category that do not meet the minimum lot size 3 Definitions Chapter 18.04 ( 84) (B) Flag Lot means an interior lot that is either a landlocked parcel which has a driveway easement across another lot abutting a street, or a lot having limited frontage providing only enough width for a driveway to reach the buildable area of the lot which is located behind another lot abutting a street. City of Palo Alto Planning & Community Environment Department Page 9 requirement have been excluded, however, this analysis includes all flag lots since they comprise of less than two percent of all residential zoned lots. Additionally, this table only includes parcels that have more than 450 sf of unused FAR5 left for development. Staff believes that including the above three conditions make the analysis more realistic in deriving the potential number of parcels that can be developed with an ADU in future. Table 2: Number of Parcels & Lot Size Requirements in R-1 R-2, RE, RMD and OS Zones (in SF) R-1 R-1 (7,000) R-1 (8,000) R-1 (10,000) R-1 (20,000) R-2 RE RMD OS Total To t a l N u m b e r of P a r c e l s * 5,969 518 1,028 668 33 107 201 41 115 8,680 Nu m b e r > 35 % a b o v e mi n . l o t s i z e 1824 (8,100) 39 (9,450) 101 (10,800) 334 (13,500) 4 (27,000) 106 (6,000) 19 (1 acre) 16 (5,000) 23 (588,060) 2,466 Source: City of Palo Alto Planning Department, November 2016 * Excludes substandard lots in each zoning category and lots with less than 450 sf of FAR remaining. The table above shows the total number of parcels per zoning designations and the number of parcels that meeting the existing ADU requirement of 35 percent above minimum lot size. Currently the City has 15,000+ residentially zoned lots, and approximately 8,680 parcels have 450 sf or more of unused FAR and are not substandard lots. With the existing Municipal Code lot size requirement of 35 percent more than the minimum, only 2,466 parcels qualify to develop an ADU. The following table shows the increase in the number of parcels eligible for ADUs if the minimum requirement was lowered at five percent intervals. The table consolidates all R-1 zone subdistricts together and consolidates the R-2, RE, RMD and OS zones. 4 Substandard Lot: A substandard lots does not meet either the lot area, width or depth requirements required by the Municipal code. 5 The “unused capacity” was estimated from the difference of total square feet allowed by zoning (FAR) and the actual “square feet built” on the lot. Staff used the actual “square feet built” data from Santa Clara County Assessor’s Office. This is the best available information that can be used for this purpose. City of Palo Alto Planning & Community Environment Department Page 10 Table 3: Analysis of Increasing Parcels Eligible for ADUs by Reducing Minimum Lot Size Requirement at Five Percent Intervals Percentage over Minimum Lot Area Number of Qualifying Parcels (all R-1) Zones Number of Qualifying Parcels (R-2, RE, RMD and OS) Zones TOTAL ELIGIBLE PARCELS 35 % Over 2,302 164 2,466 30 % Over 2,703 113 2,816 25 % Over 3,218 152 3,370 20 % Over 3,732 163 3,895 15 % Over 4,280 177 4,457 10 % Over 4,912 193 5,105 5 % Over 5,773 219 5,992 Total Number of Parcels 8,216 464 8,680 Source: City of Palo Alto Planning Department, November 2016 Timeline/Next Steps The new State laws regarding ADU become effective on January 1, 2017 whether or not the City has updated its municipal code and therefore there is some urgency to make many of the code changes included in the draft ordinance as a way to avoid confusion. Nonetheless, there are a number of complex policy options to consider, and at this evening’s meeting, the PTC could choose to: 1. Forward a recommendation to the City Council (including the proposed ordinance, or the proposed ordinance with specific modifications); or 2. Continue their discussion to December 12, with the expectation that they will be able to formulate and forward their recommendation at that time. Staff hopes to forward the PTC’s recommendation to the City Council for consideration at a meeting in January or February 2017. Any provisions that go beyond the legal requirements of State law would become effective 31 days following the Council’s adoption (on second reading). Policy Implications The City’s Housing Element Goal H1 is “Ensure the preservation of the unique character of the city’s residential neighborhoods,” and Programs H1.1.2 and H3.3.5 encourage modifying existing second unit development standards in the Zoning Code, such as lowering the minimum lot size and allow for increased floor area, in order to facilitate the creation of additional SDUs while maintaining neighborhood character and increasing the City’s affordable housing supply. The City’s Comprehensive Plan emphasizes the importance of the City’s residential neighorhoods and the quality of life for residents. Policy L-13 of the Land Use and Community City of Palo Alto Planning & Community Environment Department Page 11 Design Element emphasizes the need to increase and maintain the diversity of the City’s housing stock and Program L-13 encourages City to create design prototypes and guidelines for second units ensuring compatability with rest of the single family neighborhoods. The proposed ordinance is generally consistent wih these Comprehensive Plan provisions and would advance housing element programs referenced above. Public Outreach The Palo Alto Municipal Code requires notice of this public hearing be published in a local paper at least ten days in advance. Notice of a public hearing for this project was published in the Palo Alto Weekly on November 18, 2016. A project website (http://www.cityofpaloalto.org/gov/depts/pln/advance/accessory_dwelling_units_regulations_ update.asp) has been made available for this project where interested members of the public can find more information and also sign up for an email list. The website has been shared on City website and social media. Staff has already received multiple requests for more information. Environmental Review The proposed ordinance change is exempt from the provisions of the California Environmental Quality Act (CEQA) pursuant to CEQA Guideline sections 15061(b), 15301, 15303 and 15305 because it simply provides a comprehensive permitting scheme. Any future ADUs or JADUs would be approved ministerially and thus would be statutorily exempt from CEQA pursuant to Section 15268 (Ministerial Projects) of the State CEQA Guidelines. Not Yet Approved 161018 jb 0131553 1 November 21, 2016 Ordinance No. ____ Ordinance of the Council of the City of Palo Alto Amending Chapter 18 (Zoning) of the Palo Alto Municipal Code to Implement New State Law Requirements Relating to Accessory Dwelling Units and Junior Accessory Dwelling Units and to Reorganize and Update City’s Existing Regulations The Council of the City of Palo Alto does ORDAIN as follows: SECTION 1. Findings and Declarations. The City Council finds and declares as follows: A. Housing in California is becoming increasingly unaffordable. The average California home currently costs about 2.5 times the national average home price and the monthly rent is 50% higher than the rest of the nation. Rent in San Francisco, San Jose, Oakland, and Los Angeles are among the top 10 most unaffordable in the nation. With rising population growth, California must not only provide housing but also ensure affordability. B. Housing costs in Palo Alto are out of reach for many families and a majority of owners and renters pay 30% or more of their gross income for housing, and many pay 50% or more. C. The Palo Alto City Council, recognizing the severity of the regional housing crisis, requested that the Planning and Transportation Commission review constraints affecting the production of second (accessory) dwelling units and recommend modifications to the City’s development standards. D. While existing law enables accessory dwellings as a source of housing, recent studies show that local standards like Palo Alto’s, perhaps unintentionally, prevent homeowners from building ADUs with standards like lot coverage, large set-backs, off-street parking, or costly construction requirements. E. In September 2016, Governor Brown signed into law Senate Bill 1069, Assembly Bill 2299 and Assembly Bill 2406 relating to the creation of accessory dwelling units (ADUs) and junior accessory dwelling units. F. These new bills were intended to address the housing crisis by easing regulatory barriers for homeowners who choose to build affordable housing in their own backyards. G. This ordinance is adopted to comply with these new State mandates regarding ADUs and junior accessory dwelling units, and to reduce regulatory constraints affecting their production. SECTION 2. Section 18.04.030 (Definitions) of Chapter 18.04 (Definitions) of Title 18 (Zoning) is amended to read as follows: 18.04.030 Definitions . . . Not Yet Approved 161018 jb 0131553 2 November 21, 2016 (4) “Accessory dwelling unit” means an attached or a detached residential dwelling unit which provides complete independent living facilities for one or more persons. It shall include permanent provisions for living, sleeping, eating, cooking, and sanitation on the same parcel as the single-family dwelling is situated. An accessory dwelling unit also includes the following: a. An efficiency unit, as defined in Section 17958.1 of the Health and Safety Code. b. A manufactured home, as defined in Section 18007 of the Health and Safety Code. In some instances this Code uses the term second dwelling unit interchangeably with accessory dwelling unit. (46.5) “Dwelling unit, second” means a separate and complete dwelling unit, other than and subordinate to the main dwelling unit, whether a part of the same structure or detached, on the same residential lot. (74.5) “Junior accessory dwelling unit” means a unit that is no more than 500 square feet in size and contained entirely within an existing single-family structure. A junior accessory dwelling unit may include separate sanitation facilities, or may share sanitation facilities with the existing structure. (132) “Single-family use” means the use of a site for only one dwelling unit and, where permitted, an accessory second dwelling unit or a junior accessory dwelling unit. . . . SECTION 3. In Section 18.10.010 (a) substitute the term “accessory dwelling unit(s)” for “second dwelling unit(s)”. SECTION 4. Section 18.10.030 Table 1 and Footnote (2) are amended as follows: TABLE 1 PERMITTED AND CONDITIONALLY PERMITTED LOW-DENSITY RESIDENTIAL USES [P = Permitted Use -- CUP = Conditional Use Permit Required] R-E R-2 RMD Subject to Regulations in: ACCESSORY AND SUPPORT USES Accessory facilities and uses customarily incidental to permitted uses (no limit on number of plumbing fixtures) P P P 18.10.080 Home Occupations, when accessory to permitted residential uses. P P P 18.42.060 Horticulture, gardening, and growing of food products for consumption by occupants of the site. P P P Sale of agricultural products produced on the premises (1) P 18.10.110 Second Accessory Dwelling Units P P(2) P(2) 18.4210.0470 Junior Accessory Dwelling Units P P(2) P(2) 18.42.040 AGRICULTURE AND OPEN SPACE USES Agriculture P 18.10.110 Not Yet Approved 161018 jb 0131553 3 November 21, 2016 EDUCATIONAL, RELIGIOUS, AND ASSEMBLY USES Private Educational Facilities CUP CUP CUP Religious Congregations and Institutions CUP CUP CUP PUBLIC/QUASI-PUBLIC USES Community Centers CUP CUP CUP Utility Facilities essential to provision of utility services to the neighborhood, but excluding business offices, construction or storage yards, maintenance facilities, or corporation yards. CUP CUP CUP RECREATION USES Neighborhood Recreational Centers CUP Outdoor Recreation Services CUP CUP RESIDENTIAL USES Single-Family P P P Two-Family use, under one ownership P P Mobile Homes P P P 18.42.100 Residential Care Homes P P P RETAIL USES Cemeteries CUP Commercial Plant Nurseries CUP SERVICE USES Convalescent Facilities CUP Day Care Centers CUP CUP CUP Small Adult Day Care Homes P P P Large Adult Day Care Homes CUP CUP CUP Small Family Day Care Homes P P P Large Family Day Care Homes P P P Bed & Breakfast Inns P(3) P = Permitted Use CUP = Conditional Use Permit Required . . . (2) Second Units in R-2 and RMD Zones: An accessory second dwelling unit or a Junior Accessory Dwelling Unit associated with a single-family residence on a lot in the R-2 or RMD zones is Not Yet Approved 161018 jb 0131553 4 November 21, 2016 permitted, subject to the provisions of Section 18.10.07018.42.040, and such that no more than two units result on the lot. . . . SECTION 5. Section 18.10.040 (Development Standards) of Chapter 18.10 (Low-Density Residential (RE, R-2 and RMD) Districts) of Title 18 (Zoning) is amended to read as follows: 18.10.040 Development Standards (a) Site Specifications, Building Size, Height and Bulk, and Residential Density . . . (5) Maximum House Size: The gross floor area of attached garages and attached second accessory dwelling units and junior accessory dwelling units are included in the calculation of maximum house size. If there is no garage attached to the house, then the square footage of one detached covered parking space shall be included in the calculation. This provision applies only to single-family residences, not to duplexes allowed in the R-2 and RMD districts. . . . (B) Flag Lot Development Standards: (i) Individual Review . . . (i) Individual Review The Individual Review provisions of Section 18.12.110 of the Zoning Ordinance shall be applied to any single-family or two-family residence in the R-2 or RMD districts to those sides of a site that share an interior side lot line with the interior side or rear lot line of a property zoned for or used for single- family or two-family dwellings. , except where architectural review board review is required for an accessory second dwelling on an RMD-zoned site. The individual review criteria shall be applied only to the project's effects on adjacent single-family and two-family uses. [NOTE: STATE LAW REQUIRES MINISTERIAL REVIEW OF ADU’S.] SECTION 6. Section 18.10.060 Table 3 is amended as follows: TABLE 3 PARKING REQUIREMENTS FOR R-E, R-2 AND RMD USES Use Minimum Off-Street Parking Requirement Single-family residential use (excluding second accessory dwelling units) 2 spaces per unit, of which one must be covered Two family (R2 & RMD districts) 3 spaces total, of which at least two must be covered Not Yet Approved 161018 jb 0131553 5 November 21, 2016 Second Accessory dwelling unit, attached or detached: >450 sf in size ≤450 sf in size 2 spaces per unit, of which one must be covered 1 space per unit, which may be covered or uncovered 1 space per unit or 1 space per bedroom, whichever is greater(1), (2) Parking may be provided as tandem parking. Parking may be located within side and rear setbacks, but not in front setback See also Section 18.42.040. Junior accessory dwelling unit None Other Uses See Chapter 18.40 (1) No parking is required for an accessory dwelling unit that is part of an existing primary residence or an existing accessory structure. (2) For a corner lot, parking permitted within the corner street side setback if located at least ten (10) feet from the property line. . . . [NOTE: THESE PARKING REQUIREMENTS ARE DEFINED IN STATE LAW. THE CITY HAS THE DISCRETION TO REDUCE THESE REQUIREMENTS, BUT NOT TO INCREASE THEM.] SECTION 7. Section 18.10.070 (Second Dwelling Units) of Chapter 18.10 (Low-Density Residential (RE, R-2 and RMD) Districts) of Title 18 (Zoning) is repealed in its entirety and a new 18.10.070 is added to read as follows: 18.10.070 Accessory and Junior Accessory Dwelling Units Accessory Dwelling Units and Junior Accessory Dwelling Units are subject to the regulations set forth in Section 18.42.040. [NOTE: THESE DEVELOPMENT STANDARDS HAVE BEEN MOVED TO SECTION 18.42.040.] SECTION 8. Section 18.10.120 (Architectural Review) of Chapter 18.10 (Low-Density Residential (RE, R-2 and RMD) Districts) of Title 18 (Zoning) is amended to read as follows: 18.10.120 Architectural Review Not Yet Approved 161018 jb 0131553 6 November 21, 2016 Architectural review, as required in Section 18.76.020, is required in the R-E, R-2, and RMD districts whenever three or more adjacent residential units are intended to be developed concurrently, whether through subdivision or individual applications. Architectural review is also required for second dwelling units of more than 900 square feet, when located in the Neighborhood Preservation Combining District (NP). [NOTE: STATE LAW REQUIRES MINISTERIAL REVIEW OF ADU’S.] SECTION 9. Section 18.10.140 (Neighborhood Preservation Combining District (NP) Standards) of Chapter 18.10 (Low-Density Residential (RE, R-2 and RMD) Districts) of Title 18 (Zoning) is amended to read as follows: 18.10.140 Neighborhood Preservation Combining District (NP) Standards . . . (2) Design Review Required For properties on which two or more residential units are developed or modified, design review and approval shall be required by the architectural review board in compliance with procedures established in Section 18.76.020 for any new development or modification to any structure on the property and for site amenities. No design review is required for construction of or modifications to single-family structures that constitute the only principal structure on a parcel of land. No design review is required for construction of second dwelling units on a parcel except when the second unit exceeds 900 square feet in size. . . . [NOTE: STATE LAW REQUIRES MINISTERIAL REVIEW OF ADU’S.] SECTION 10. In Section 18.10.150(e), substitute the term “accessory dwelling units” for “second dwelling units”. . . . SECTION 11. Section 18.12.010(a) is amended as follows: (a) Single Family Residential District [R-1] The R-1 single family residential district is intended to create, preserve, and enhance areas suitable for detached dwellings with a strong presence of nature and with open area affording maximum privacy and opportunities for outdoor living and children's play. Minimum site area requirements are established to create and preserve variety among neighborhoods, to provide adequate open area, and to encourage quality design. Second Accessory dwelling units, junior accessory dwelling units and accessory structures or buildings are appropriate. where consistent with the site and neighborhood character. Community uses and facilities, such as churches and schools, should be limited unless no net loss of housing would result. . . . SECTION 12. Section 18.12.030 Table 1, is amended as follows: Table 1 PERMITTED AND CONDITIONAL R-1 RESIDENTIAL USES Not Yet Approved 161018 jb 0131553 7 November 21, 2016 R-1 and all R-1 Subdistricts Subject to Regulations for: ACCESSORY AND SUPPORT USES Accessory facilities and uses customarily incidental to permitted uses with no more than two plumbing fixtures and no kitchen facility, or of a size less than or equal to 200 square feet P 18.04.030(a)(3) 18.12.080 Accessory facilities and uses customarily incidental to permitted uses with more than two plumbing fixtures (but with no kitchen), and in excess of 200 square feet in size, but excluding second accessory dwelling units CUP 18.12.080 Home occupations, when accessory to permitted residential P 18.42.060 Horticulture, gardening, and growing of food products for consumption by occupants of the site P Second Accessory Dwelling Units P(1) 18.42.04012.070 Junior Accessory Dwelling Unit P(1) 18.42.040 EDUCATIONAL, RELIGIOUS AND ASSEMBLY USES Private Educational Facilities CUP Churches and Religious Institutions CUP PUBLIC/QUASI PUBLIC USES Community Centers CUP Utility Facilities essential to provision of utility services to the neighborhood, but excluding business offices, construction or storage yards, maintenance facilities, or corporation yards CUP RECREATION USES Outdoor Recreation Services CUP RESIDENTIAL USES Single-Family P Mobile Homes P 18.42.100 Residential Care Homes P SERVICE USES Day Care Centers CUP Small Adult Day Care Homes P Large Adult Day Care Homes CUP Small Family Day Care Homes P Large Family Day Care Homes P P = Permitted Use CUP = Conditional Use Permit Required (1) An Accessory Dwelling Unit or a Junior Accessory Dwelling Unit associated with a single- family residence on a lot is permitted, subject to the provisions of Section 18.42.040, and such that no more than two units result on the lot. Not Yet Approved 161018 jb 0131553 8 November 21, 2016 SECTION 13. Section 18.12.040 Table 2, footnote (8) is amended as follows: (8) Maximum House Size: The gross floor area of attached garages and attached accessory second dwelling units and junior accessory dwelling units are included in the calculation of maximum house size. If there is no garage attached to the house, then the square footage of one detached covered parking space shall be included in the calculation. SECTION 14. Section 18.12.060 Table 4 is amended as follows: Table 4 shows the minimum off-street automobile parking requirements for specific uses in the R- 1 district. Table 4 Parking Requirements for Specific R-1 Uses Use Minimum Off-Street Parking Requirement Single-family residential use (excluding second accessory dwelling units) 2 spaces per unit, of which one must be covered. Second Accessory dwelling unit , attached or detached 2 spaces per unit, of which one must be covered 1 space per unit or 1 space per bedroom, whichever is greater(1), (2) Parking may be provided as tandem parking. Parking may be located within side and rear setbacks, but not in front setback See also Section 18.42.040. Junior Accessory Dwelling Unit None Other Uses See Chs. 18.52 and 18.54 (1) No parking is required for an accessory dwelling unit that is part of an existing primary residence or an existing accessory structure. (2) For a corner lot, parking permitted within the corner street side setback if located at least ten (10) feet from the property line. . . . [NOTE: THESE PARKING REQUIREMENTS ARE DEFINED IN STATE LAW. THE CITY HAS THE DISCRETION TO REDUCE THESE REQUIREMENTS, BUT NOT TO INCREASE THEM.] SECTION 15. Section 18.12.070 (Second Dwelling Units) of Chapter 18.12 (R-1 Single-Family Residential District) of Title 18 (Zoning) is repealed in its entirety and a new 18.12.070 is added to read as follows: Not Yet Approved 161018 jb 0131553 9 November 21, 2016 18.12.070 Accessory and Junior Accessory Dwelling Units Accessory Dwelling Units and Junior Accessory Dwelling Units are subject to the regulations set forth in Section 18.42.040. [NOTE: THESE DEVELOPMENT STANDARDS HAVE BEEN MOVED TO SECTION 18.42.040.] SECTION 16. In Section 18.12.090(b)(2), substitute the term “accessory dwelling unit(s)” for “second dwelling unit(s)”. . . . SECTION 17. In Section 18.12.150(d), substitute the term “accessory dwelling unit(s)” for “second dwelling unit(s)”. . . . SECTION 18. Section 18.28.040, Table 1, is amended as follows: Table 1 Land Uses PF OS AC Subject to Regulations in Chapter: ACCESSORY AND SUPPORT USES Accessory facilities and accessory uses P Chs. 18.40 and 18.42 Eating and drinking services in conjunction with a permitted use CUP (1) Retail services as an accessory use to the administrative offices of a non-profit organization, provided that such retail services do not exceed 25% of the gross floor area of the combined administrative office services and retail service uses CUP (1) Retail services in conjunction with a permitted use CUP (1) Sale of agricultural products produced on the premises; provided, that no permanent commercial structure for the sale or processing of agricultural products shall be permitted. P Second Accessory dwelling units, subject to regulations in Section 18.28.07042.040 P(2) 18.28.070 18.42.040 Junior Accessory Dwelling Unit P(2) 18.42.040 AGRICULTURAL AND OPEN SPACE USES Not Yet Approved 161018 jb 0131553 10 November 21, 2016 Agricultural Uses, including animal husbandry, crops, dairying, horticulture, nurseries, livestock farming, tree farming, viticulture, and similar uses not inconsistent with the intent and purpose of this chapter P P Botanical conservatories, outdoor nature laboratories, and similar facilities P Native wildlife sanctuaries P Park uses and uses incidental to park operation P EDUCATIONAL, RELIGIOUS, AND ASSEMBLY USES Business or trade schools CUP (1) Churches and religious institutions CUP (1) Educational, charitable, research, and philanthropic institutions CUP Private educational facilities CUP (1) Public or private colleges and universities and facilities appurtenant thereto CUP Special education classes CUP (1) OFFICE USES Administrative office services for non-profit organizations CUP (1) OTHER USES Other uses which, in the opinion of the director, are similar to those listed as permitted or conditionally permitted uses CUP (1) PUBLIC/QUASI-PUBLIC FACILITY USES All facilities owned or leased, and operated or used, by the City of Palo Alto, the County of Santa Clara, the State of California, the government of the United States, the Palo Alto Unified School District, or any other governmental agency P Communication Facilities CUP Community Centers CUP (1) Utility Facilities CUP CUP CUP RECREATIONAL USES Neighborhood recreation centers CUP (1) Outdoor recreation services CUP (1) CUP Recreational uses including riding academies, clubs, stables, country clubs, and golf courses CUP Youth clubs CUP (1) RESIDENTIAL USES Single-family dwellings P Manufactured housing (including mobile homes on permanent foundations) P 18.40. Not Yet Approved 161018 jb 0131553 11 November 21, 2016 Guest ranches CUP Residential care facilities, when utilizing existing structures on the site CUP (1) Residential Care Homes P Residential use, and accessory buildings and uses customarily incidental to permitted dwellings; provided, however, that such permitted dwellings shall be for the exclusive use of the owner or owners, or lessee or lessor of land upon which the permitted agricultural use is conducted, and the residence of other members of the same family and bona fide employees of the aforementioned P SERVICE USES Animal care, including boarding and kennels CUP CUP Cemeteries CUP Cemeteries, not including mausolea, crematoria, or columbaria CUP Small day care homes P Large day care homes CUP Day care centers CUP (1) Art, dance, gymnastic, exercise or music studios or CUP (1) Medical Services: Hospitals CUP Outpatient medical facilities with associated medical research CUP TEMPORARY USES Temporary parking facilities, provided that such facilities CUP (1) TRANSPORTATION USES Airports and airport-related uses CUP (1) . . . (2) An accessory dwelling unit or a Junior Accessory Dwelling Unit associated with a single- family residence on a lot in the OS District is permitted, subject to the provisions of Section 18.42.040, and such that no more than two units result on the lot. SECTION 19. Section 18.28.070(a)(Second Dwelling Units) is amended as follows: 18.28.070 Additional OS District Regulations The following additional regulations shall apply in the OS district: (a) AccessorySecond Dwelling Units and Junior Dwelling Units Accessory Dwelling Units and Junior Accessory Dwelling Units are subject to the regulations set forth in Section 18.42.040. Not more than one attached or detached second dwelling units shall be allowed on a lot in the OS district, and shall be subject to the following regulations: (1) Second dwelling shall only be permitted on sites with a minimum site area of 10 acres; (2) Attached second dwelling units shall comply with the OS district height limitation of 25 feet; and Not Yet Approved 161018 jb 0131553 12 November 21, 2016 (3) Second dwelling units shall follow the standards set forth in the Residential Estate (R-E) District for second dwelling units (18.10.070(b)), with the exceptions outlined in subsections 1 and 2 above. [NOTE: THESE DEVELOPMENT STANDARDS HAVE BEEN MOVED TO SECTION 18.42.040.] . . . SECTION 20. Section 18.42.040 (Accessory and Junior Dwelling Units) is added as follows: 18.42.040 Accessory and Junior Dwelling Units The following regulations apply to zoning districts where accessory dwelling units and junior accessory dwelling units are permitted. (a) Accessory Dwelling Units 1. Purpose The intent of this section is to provide regulations to accommodate accessory dwelling units, in order to provide for variety to the city's housing stock and additional affordable housing opportunities. Accessory dwelling units shall be separate, self-contained living units, with separate entrances from the main residence, whether attached or detached. The standards below are provided to minimize the impacts of accessory dwelling units on nearby residents and throughout the city, and to assure that the size, location and design of such dwellings is compatible with the existing residence on the site and with other structures in the area. 2. Minimum Lot Sizes (i) In the R-1 district and all R-1 subdistricts, the minimum lot size for an accessory dwelling unit shall be 35% greater than the minimum lot size otherwise established for the district. Provided, for flag lots, the minimum lot size shall be 35% greater than the minimum lot size established by Section 21.20.301 of the Subdivision Ordinance. (ii) Table 1 shows the minimum lot size required for an accessory dwelling unit in the R-1 districts, provided, in the event of a conflict between subsection (i) and this subsection (ii), subsection (i) shall control. TABLE 1 MINIMUM LOT SIZES FOR ACCESSORY DWELLING UNITS District Minimum Lot Size (all lots except flag lots) Minimum Lot Size (flag lots) R-1 8,100 square feet ("sf") 9,720 sf R-1 (7,000) 9,450 sf 11,340 sf R-1 (8,000) 10,800 sf 12,960 sf R-1 (10,000) 13,500 sf 16,200 sf R-1 (20,000) 27,000 sf 32,400 sf Exclusive of any portion of the lot used for access to the street Not Yet Approved 161018 jb 0131553 13 November 21, 2016 (iii) In the RE district, the minimum lot size for an accessory dwelling unit is one acre. However, for flag lots in the RE District, the minimum lot size shall be 35% greater than the minimum lot size established by Section 21.20.301 of the Subdivision Ordinance. (iv) In the R-2 District the minimum lot size for an accessory dwelling unit is 6,000 square feet and in the RMD District it is 5,000 square feet. All flag lots in the R-2 and RMD Districts shall comply with the lot size requirements set forth in Section 21.20.301 of the Subdivision Ordinance. For R-2 zoned lots of 6,000 square feet or greater, but less than 7,500 square feet, an Accessory Dwelling Unit of 450 square feet or less is permitted. (v) In the OS District, the minimum lot size for an accessory dwelling unit is 10 acres. [NOTE: STATE LAW ALLOWS THE CITY TO MAINTAIN EXISTING REQUIREMENTS FOR MINIMUM LOT SIZES FOR ACCESSORY DWELLING UNITS. AS A POLICY MATTER, THE CITY COULD CONSIDER REVISING OR ELIMINATING SOME OF THESE REQUIREMENTS TO ENCOURAGE ADDITIONAL UNITS, OR COULD LEAVE THESE REQUIREMENTS IN PLACE WITH THE KNOWLEDGE THAT UNDER STATE LAW, JUNIOR UNITS ARE ALLOWED ANYWHERE THERE IS AN EXISTING RESIDENCE, REGARDLESS OF LOT SIZE OR NON-CONFORMANCE.] 3. Setbacks (i) Accessory dwelling units shall comply with the underlying zoning district’s setbacks. (ii) Notwithstanding section (i) above, no setback shall be required for an existing garage that is converted to an accessory dwelling unit. (iii) In districts permitting second story accessory dwelling units, a setback of no more than five feet from the side and rear lot lines shall be required for an accessory dwelling unit constructed above a garage. [NOTE: STATE LAW SPECIFIES ITEMS (II) AND (III) ABOVE.] 4. Lot Coverage/FAR An accessory dwelling unit shall be included in the lot coverage and FAR requirements applicable to the primary dwelling unit. [NOTE: THIS IS AN EXISTING CODE REQUIREMENT.] 5. Conversion of Space in Existing Single Family Residence or Existing Accessory Structure Notwithstanding the lot size, setback, height and parking requirements in this Section 18.42.040, in the R-1 and RE Districts only, an Accessory Dwelling Unit shall be permitted if the unit is contained within the existing space of a single-family residence or and existing accessory structure, has independent exterior access from the existing residence, and the side and rear setbacks are sufficient for fire safety. a. Accessory dwelling units shall not be required to provide fire sprinklers if they are not required for the primary residence. Not Yet Approved 161018 jb 0131553 14 November 21, 2016 b. For the purposes of this section, the portion of the single-family residence or accessory structure subject to the conversion, must be legally permitted and existing as of January 1, 2017. c. Notwithstanding the allowance in this section, only one accessory dwelling unit or junior accessory dwelling unit may be located on any lot subject to this section. [NOTE: THESE REQUIREMENTS ARE REQUIRED BY STATE LAW, WITH THE EXCEPTION OF ITEM (I)(C).] 6. Privacy Any window, door or deck of a second story accessory dwelling unit shall utilize techniques to lessen the privacy impacts onto adjacent properties. These techniques may include placement of doors, windows and decks to minimize overview of neighboring dwelling units, use of obscured glazing, window placement above eye level, and screening treatments. [NOTE: STATE LAW REQUIRES A MINISTERIAL PROCESS FOR APPROVAL OF ADU’S, BUT ALLOWS DEVELOPMENT STANDARDS. CITY POLICY MAKERS SHOULD CONSIDER WHETHER THE PRIVACY-RELATED STANDARDS SUGGESTED HERE ARE SUFFICIENTLY CLEAR SO AS TO BE MINISTERIAL.] 7. Additional Development Standards for Attached Accessory Dwelling Units (i) Attached accessory dwelling units are those attached to the main dwelling. All attached accessory dwelling units shall be subject to the additional development requirements specified below. (ii) Attached unit size counts toward the calculation of maximum house size. (iii) Unit Size: The maximum size of an attached accessory dwelling unit living area shall not exceed 450 square feet and shall not exceed 50% of the existing living area of the primary existing dwelling unit. The accessory dwelling unit and any covered parking shall be included in the total floor area for the site, but the covered parking area is not included in the maximum 450 square feet for attached unit. Any basement space used as an accessory dwelling unit or portion thereof shall be counted as floor area for the purpose of calculating the maximum size of the accessory unit. (iv) Maximum height: one story and 17 feet. However, in the RE District, attached Accessory Dwelling Units may be 30 feet. In the OS zone, attached Accessory Dwelling Units may be 25 feet. (v) Separate Entry Required for Attached Units: A separate exterior entry shall be provided to serve an accessory dwelling unit. (vi) Except on corner lots, the accessory dwelling unit may not have an entranceway facing the same lot line (property line) as the entranceway to the main dwelling unit, and exterior staircases to second floor units shall be located toward the interior side or rear yard of the property. (vii) In the RE zone, maximum size of covered parking area for the accessory dwelling unit is 200 square feet. Not Yet Approved 161018 jb 0131553 15 November 21, 2016 [NOTE: DEVELOPMENT STANDARDS IN THIS SECTION DERIVE FROM THE CITY’S EXISTING REQUIREMENTS, AS MODIFIED TO COMPLY WITH STATE LAW. THE CITY COULD CHOOSE TO MODIFY SOME OF THESE STANDARDS.] 8. Additional Development Standards for Detached Accessory Dwelling Units (i) Detached accessory dwelling units are those detached from the main dwelling. All detached accessory dwelling units shall be subject to the additional development standards specified below. (ii) The maximum size of the detached accessory dwelling unit living area shall be 900 square feet. a. The accessory dwelling unit and covered parking shall be included in the total floor area for the site, but the covered parking area is not included within the maximum 900 square feet for detached unit. b. Any basement space used as an accessory dwelling unit or portion thereof shall be counted as floor area for the purpose of calculating the maximum size of the accessory unit. c. For R-2 zoned lots of 6,000 square feet or greater, but less than 7,500 square feet, a detached Accessory Dwelling Unit of 450 square feet or less is permitted. (iii) Maximum height: one story and 17 feet. (iv) Design: The detached accessory dwelling unit shall be similar to the main residence with respect to style, roof pitch, color and materials. [NOTE: STATE LAW REQUIRES A MINISTERIAL PROCESS FOR APPROVAL OF ADU’S, BUT ALLOWS DEVELOPMENT STANDARDS. CITY POLICY MAKERS SHOULD CONSIDER WHETHER THE ABOVE DESIGN- RELATED STANDARD SUGGESTED HERE ARE SUFFICIENTLY CLEAR SO AS TO BE MINISTERIAL.] (v) In the RE District, the maximum size of covered parking area for the detached accessory dwelling unit is 200 square feet. [NOTE: DEVELOPMENT STANDARDS IN THIS SECTION DERIVE FROM THE CITY’S EXISTING REQUIREMENTS, AS MODIFIED TO COMPLY WITH STATE LAW. THE CITY COULD CHOOSE TO MODIFY SOME OF THESE STANDARDS.] 9. Additional Requirements for All Accessory Dwelling Units (i) Sale of Units: The Accessory dwelling unit shall not be sold separately from the primary residence. (ii) Short term rentals. The accessory dwelling unit shall not be rented for periods of less than 30 days. (iii) Number of Units Allowed: Only one accessory dwelling unit or junior accessory dwelling unit may be located on any residentially zoned lot that permits a single-family dwelling and which is either not developed or contains only one existing legal single-family dwelling. Not Yet Approved 161018 jb 0131553 16 November 21, 2016 (iv) Existing Development: A single-family dwelling must exist on the lot or shall be constructed on the lot in conjunction with the construction of the accessory dwelling unit. (v) Occupancy: The owner of a parcel proposed for accessory dwelling use shall occupy as a principal residence either the primary dwelling or the accessory dwelling. (vi) Accessory dwelling units shall not be required to provide fire sprinklers if they are not required for the primary residence. (vii) Street Address Required: Street addresses shall be assigned to all accessory dwellings to assist in emergency response. (viii) Street Access: The accessory dwelling unit shall have street access from a driveway in common with the main residence in order to prevent new curb cuts, excessive paving, and elimination of street trees. Separate driveway access may be permitted by the director upon a determination that separate access will result in fewer environmental impacts such as excessive paving, unnecessary grading or unnecessary tree removal, and that such separate access will not create the appearance, from the street, of a lot division or two-family use. [NOTE: THE STANDARDS SUGGESTED HERE DERIVE FROM STATE LAW AND EXISTING CODE REQUIREMENTS WITH SOME CLARIFICATIONS AND UPDATES.] 10. Parking The following parking criteria apply to both detached and attached accessory dwelling units: (i) One parking space per unit or one parking space per bedroom, whichever is greater, shall be provided for the accessory dwelling unit. (ii) Such parking may be provided as tandem parking, may be located on an existing driveway and may be located in side and rear setbacks, but not in front setback. For a corner lot, parking may be located within the corner street side setback if located at least ten (10) feet from the property line. (iii) Notwithstanding subsection (i) above, no parking shall be required for: a. Accessory dwelling units located within one-half mile of public transit. For purposes of this section, “public transit” shall include a rail transit station and a bus stop with two or more lines that provide transit service at 15 minute intervals or better during peak commute periods. The Director shall have the authority to further interpret this section. b. Accessory dwelling units located within an architecturally and historically significant National, California or locally designated historic district. c. Accessory dwelling units part of the existing primary residence or an existing accessory structure. d. When on-street parking permits are required but not offered to the occupant of the Accessory dwelling unit. Not Yet Approved 161018 jb 0131553 17 November 21, 2016 e. When there is a car-share vehicle located within one block of the Accessory dwelling unit. For purposes of this section, “car-share vehicle” shall mean part of an established program intended to stay in a fixed location for at least 10 years and available to the public. The Director shall have the authority to further interpret this section. (iv) When a garage, carport, or covered parking structure is demolished in conjunction with the construction of an accessory dwelling unit, any required replacement spaces may be located in any configuration on the same lot as the accessory dwelling unit, including, but not limited to, as covered spaces, uncovered spaces, or tandem spaces, or by the use of mechanical automobile parking lifts. [NOTE: THIS SECTION INCORPORATES NEW STATE LAW PARKING REQUIREMENTS.] (b) Junior Accessory Dwelling Units 1. Purposes: This Section provides standards for the establishment of junior accessory dwelling units, an alternative to the standard accessory dwelling unit. Junior accessory dwelling units will typically be smaller than an accessory dwelling unit, will be constructed within the walls of an existing single family structure and requires owner occupancy in the single family residence where the unit is located. 2. Development Standards. Junior accessory dwelling units shall comply with the following standards: (i) Number of Units Allowed: Only one accessory dwelling unit or, junior accessory dwelling unit, may be located on any residentially zoned lot that permits a single-family dwelling except as otherwise regulated or restricted by an adopted Coordinated Area Plan or Specific Plan. A junior accessory dwelling unit may only be located on a lot which already contains one legal single-family dwelling. (ii) Size: A junior accessory dwelling unit shall not exceed 500 square feet in size. (iii) Lot Coverage/FAR: A junior accessory dwelling unit shall be included in the lot coverage and FAR requirements applicable to the primary dwelling unit. (iii) Owner Occupancy: The owner of a parcel proposed for a junior accessory dwelling unit shall occupy as a principal residence either the primary dwelling or the junior accessory dwelling. (iv) Sale Prohibited: A junior accessory dwelling unit shall not be sold independently of the primary dwelling on the parcel. (v) Short term rentals: The junior accessory dwelling unit shall not be rented for periods of less than 30 days. (vi) Location of Junior Accessory Dwelling Unit: A junior accessory dwelling unit must be created within the existing walls of an existing primary dwelling, and must include conversion of an existing bedroom. Not Yet Approved 161018 jb 0131553 18 November 21, 2016 (vii) Separate Entry Required: A separate exterior entry shall be provided to serve a junior accessory dwelling unit, with an interior entry to the main living area. A junior accessory dwelling may include a second interior doorway for sound attenuation. (viii) Kitchen Requirements: The junior accessory dwelling unit shall include an efficiency kitchen, requiring and limited to the following components: a. A sink with a maximum waste line diameter of one-and-a-half (1.5) inches, b. A cooking facility or appliance which does not require electrical service greater than one hundred and twenty (120) volts, or natural or propane gas, and c. A food preparation counter and storage cabinets that are of reasonable size in relation to the size of the junior accessory dwelling unit. (ix) Parking. No additional parking is required beyond that required at the time the existing primary dwelling was constructed. [NOTE: THIS IS A NEW SECTION THAT IMPLEMENTS AB 2406 ABOUT JUNIOR ACCESSORY DWELLING UNITS IN RESIDENTIAL DISTRICTS WHICH CURRENTLY PERMIT ADU’S.] SECTION 21. Section 18.52.040 (6)(c) Table 1, is amended as follows: Table 1 Minimum Off-Street Parking Requirements Use Vehicle Parking Requirement (# of spaces) Bicycle Parking Requirement Spaces Class1 Long Term (LT) and Short Term (ST) RESIDENTIAL USES Single -Family Residential (Primary Unit) Tandem Parking Allowed (a) In the OS district 4 spaces, of which at least one space must be covered None (b) In all other districts 2 spaces, of which at least one space must be covered (c) Underground parking for single family uses is prohibited, except pursuant to a variance granted in accordance with the provisions of Chapter 18.76 (Permits and Approvals) of this title, in which case the area of the underground garage shall be counted toward the gross floor area. Not Yet Approved 161018 jb 0131553 19 November 21, 2016 Second Accessory Dwelling Unit (In addition to main dwelling unit requirements) >450 sf in size <450 sf in size 2 spaces, of which at least one must be covered 1 space, covered or uncovered 1 space per unit or 1 space per bedroom, whichever is greater(2), (3) Parking may be provided as tandem parking. Parking may be located within side and rear setbacks, but not in front setback See also Section 18.42.040. None Junior Accessory Dwelling Units None Two-Family Residential (R-2 & RMD Districts) 1.5 spaces per unit, of which at least one space per unit must be covered Tandem Parking Allowed, with one tandem space per unit, associated directly with another parking space for the same unit 1 space per Unit 100% – LT Multiple -Family Residential 1.25 per studio unit 1.5 per 1-bedroom unit 2 per 2-bedroom or larger unit At least one space per unit must be covered Tandem parking allowed for any unit requiring two spaces (one tandem space per unit, associated directly with another parking space for the same unit, up to a maximum of 25% of total required spaces for any project with more than four (4) units) 1 per unit 100% – LT Not Yet Approved 161018 jb 0131553 20 November 21, 2016 (a) Guest Parking For projects exceeding 3 units; 1 space plus 10% of total number of units, provided that if more than one space per unit is assigned or secured parking, then guest spaces equal to 33% of all units is required. 1 space for each 10 units 100% – ST . . . (2) No parking is required for an accessory dwelling unit that is part of an existing primary residence or an existing accessory structure. (3) For a corner lot, parking permitted within the corner street side setback if located at least ten (10) feet from the property line. SECTION 21. In Section 18.76.020 (D), substitute the term “accessory dwelling unit(s)” for “second dwelling unit(s)”. SECTION 22. Any provision of the Palo Alto Municipal Code or appendices thereto inconsistent with the provisions of this Ordinance, to the extent of such inconsistencies and no further, is hereby repealed or modified to that extent necessary to effect the provisions of this Ordinance. SECTION 23. If any section, subsection, sentence, clause, or phrase of this Ordinance is for any reason held to be invalid or unconstitutional by a decision of any court of competent jurisdiction, such decision shall not affect the validity of the remaining portions of this Ordinance. The City Council hereby declares that it would have passed this Ordinance and each and every section, subsection, sentence, clause, or phrase not declared invalid or unconstitutional without regard to whether any portion of the ordinance would be subsequently declared invalid or unconstitutional. SECTION 24. The Council finds that the adoption of this ordinance is exempt from the provisions of the California Environmental Quality Act pursuant to CEQA Guideline sections 15061(b) and 15301, 15303 and 15305 because it simply provides a comprehensive permitting scheme. SECTION 25. This ordinance shall be effective on the thirty-first date after the date of its adoption. INTRODUCED: PASSED: AYES: NOES: Not Yet Approved 161018 jb 0131553 21 November 21, 2016 ABSENT: NOT PARTICIPATING: ATTEST: ____________________________ ____________________________ City Clerk Mayor APPROVED AS TO FORM: APPROVED: ____________________________ ____________________________ Senior Asst. City Attorney City Manager ____________________________ Director of Planning & Community Environment SB 1069 Page 1 SB-1069 Land use: zoning. (2015-2016) SECTION 1. Section 65582.1 of the Government Code is amended to read: 65582.1. The Legislature finds and declares that it has provided reforms and incentives to facilitate and expedite the construction of affordable housing. Those reforms and incentives can be found in the following provisions: (a) Housing element law (Article 10.6 (commencing with Section 65580) of Chapter 3). (b) Extension of statute of limitations in actions challenging the housing element and brought in support of affordable housing (subdivision (d) of Section 65009). (c) Restrictions on disapproval of housing developments (Section 65589.5). (d) Priority for affordable housing in the allocation of water and sewer hookups (Section 65589.7). (e) Least cost zoning law (Section 65913.1). (f) Density bonus law (Section 65915). (g) Second Accessory dwelling units (Sections 65852.150 and 65852.2). (h) By-right housing, in which certain multifamily housing are designated a permitted use (Section 65589.4). (i) No-net-loss-in zoning density law limiting downzonings and density reductions (Section 65863). (j) Requiring persons who sue to halt affordable housing to pay attorney fees (Section 65914) or post a bond (Section 529.2 of the Code of Civil Procedure). (k) Reduced time for action on affordable housing applications under the approval of development permits process (Article 5 (commencing with Section 65950) of Chapter 4.5). (l) Limiting moratoriums on multifamily housing (Section 65858). (m) Prohibiting discrimination against affordable housing (Section 65008). (n) California Fair Employment and Housing Act (Part 2.8 (commencing with Section 12900) of Division 3). (o) Community redevelopment law (Part 1 (commencing with Section 33000) of Division 24 of the Health and Safety Code, and in particular Sections 33334.2 and 33413). SEC. 2. SB 1069 Page 2 Section 65583.1 of the Government Code is amended to read: 65583.1. (a) The Department of Housing and Community Development, in evaluating a proposed or adopted housing element for substantial compliance with this article, may allow a city or county to identify adequate sites, as required pursuant to Section 65583, by a variety of methods, including, but not limited to, redesignation of property to a more intense land use category and increasing the density allowed within one or more categories. The department may also allow a city or county to identify sites for second accessory dwelling units based on the number of second accessory dwelling units developed in the prior housing element planning period whether or not the units are permitted by right, the need for these units in the community, the resources or incentives available for their development, and any other relevant factors, as determined by the department. Nothing in this section reduces the responsibility of a city or county to identify, by income category, the total number of sites for residential development as required by this article. (b) Sites that contain permanent housing units located on a military base undergoing closure or conversion as a result of action pursuant to the Defense Authorization Amendments and Base Closure and Realignment Act (Public Law 100-526), the Defense Base Closure and Realignment Act of 1990 (Public Law 101-510), or any subsequent act requiring the closure or conversion of a military base may be identified as an adequate site if the housing element demonstrates that the housing units will be available for occupancy by households within the planning period of the element. No sites containing housing units scheduled or planned for demolition or conversion to nonresidential uses shall qualify as an adequate site. Any city, city and county, or county using this subdivision shall address the progress in meeting this section in the reports provided pursuant to paragraph (1) of subdivision (b) of Section 65400. (c) (1) The Department of Housing and Community Development may allow a city or county to substitute the provision of units for up to 25 percent of the community’s obligation to identify adequate sites for any income category in its housing element pursuant to paragraph (1) of subdivision (c) of Section 65583 where the community includes in its housing element a program committing the local government to provide units in that income category within the city or county that will be made available through the provision of committed assistance during the planning period covered by the element to low- and very low income households at affordable housing costs or affordable rents, as defined in Sections 50052.5 and 50053 of the Health and Safety Code, and which meet the requirements of paragraph (2). Except as otherwise provided in this subdivision, the community may substitute one dwelling unit for one dwelling unit site in the applicable income category. The program shall do all of the following: (A) Identify the specific, existing sources of committed assistance and dedicate a specific portion of the funds from those sources to the provision of housing pursuant to this subdivision. SB 1069 Page 3 (B) Indicate the number of units that will be provided to both low- and very low income households and demonstrate that the amount of dedicated funds is sufficient to develop the units at affordable housing costs or affordable rents. (C) Demonstrate that the units meet the requirements of paragraph (2). (2) Only units that comply with subparagraph (A), (B), or (C) qualify for inclusion in the housing element program described in paragraph (1), as follows: (A) Units that are to be substantially rehabilitated with committed assistance from the city or county and constitute a net increase in the community’s stock of housing affordable to low- and very low income households. For purposes of this subparagraph, a unit is not eligible to be “substantially rehabilitated” unless all of the following requirements are met: (i) At the time the unit is identified for substantial rehabilitation, (I) the local government has determined that the unit is at imminent risk of loss to the housing stock, (II) the local government has committed to provide relocation assistance pursuant to Chapter 16 (commencing with Section 7260) of Division 7 of Title 1 to any occupants temporarily or permanently displaced by the rehabilitation or code enforcement activity, or the relocation is otherwise provided prior to displacement either as a condition of receivership, or provided by the property owner or the local government pursuant to Article 2.5 (commencing with Section 17975) of Chapter 5 of Part 1.5 of Division 13 of the Health and Safety Code, or as otherwise provided by local ordinance; provided the assistance includes not less than the equivalent of four months’ rent and moving expenses and comparable replacement housing consistent with the moving expenses and comparable replacement housing required pursuant to Section 7260, (III) the local government requires that any displaced occupants will have the right to reoccupy the rehabilitated units, and (IV) the unit has been found by the local government or a court to be unfit for human habitation due to the existence of at least four violations of the conditions listed in subdivisions (a) to (g), inclusive, of Section 17995.3 of the Health and Safety Code. (ii) The rehabilitated unit will have long-term affordability covenants and restrictions that require the unit to be available to, and occupied by, persons or families of low- or very low income at affordable housing costs for at least 20 years or the time period required by any applicable federal or state law or regulation. (iii) Prior to initial occupancy after rehabilitation, the local code enforcement agency shall issue a certificate of occupancy indicating compliance with all applicable state and local building code and health and safety code requirements. (B) Units that are located either on foreclosed property or in a multifamily rental or ownership housing complex of three or more units, are converted with committed assistance from the city or county from nonaffordable to affordable by acquisition of the unit or the purchase of affordability covenants and restrictions for the unit, are not acquired by eminent domain, and constitute a net increase in the community’s stock of housing affordable to low- and very low income households. For purposes of this subparagraph, a unit is not converted by acquisition or the purchase of affordability covenants unless all of the following occur: SB 1069 Page 4 (i) The unit is made available for rent at a cost affordable to low- or very low income households. (ii) At the time the unit is identified for acquisition, the unit is not available at an affordable housing cost to either of the following: (I) Low-income households, if the unit will be made affordable to low-income households. (II) Very low income households, if the unit will be made affordable to very low income households. (iii) At the time the unit is identified for acquisition the unit is not occupied by low- or very low income households or if the acquired unit is occupied, the local government has committed to provide relocation assistance prior to displacement, if any, pursuant to Chapter 16 (commencing with Section 7260) of Division 7 of Title 1 to any occupants displaced by the conversion, or the relocation is otherwise provided prior to displacement; provided the assistance includes not less than the equivalent of four months’ rent and moving expenses and comparable replacement housing consistent with the moving expenses and comparable replacement housing required pursuant to Section 7260. (iv) The unit is in decent, safe, and sanitary condition at the time of occupancy. (v) The unit has long-term affordability covenants and restrictions that require the unit to be affordable to persons of low- or very low income for not less than 55 years. (vi) For units located in multifamily ownership housing complexes with three or more units, or on or after January 1, 2015, on foreclosed properties, at least an equal number of new- construction multifamily rental units affordable to lower income households have been constructed in the city or county within the same planning period as the number of ownership units to be converted. (C) Units that will be preserved at affordable housing costs to persons or families of low- or very low incomes with committed assistance from the city or county by acquisition of the unit or the purchase of affordability covenants for the unit. For purposes of this subparagraph, a unit shall not be deemed preserved unless all of the following occur: (i) The unit has long-term affordability covenants and restrictions that require the unit to be affordable to, and reserved for occupancy by, persons of the same or lower income group as the current occupants for a period of at least 40 years. (ii) The unit is within an “assisted housing development,” as defined in paragraph (3) of subdivision (a) of Section 65863.10. (iii) The city or county finds, after a public hearing, that the unit is eligible, and is reasonably expected, to change from housing affordable to low- and very low income households to any other use during the next five years due to termination of subsidy contracts, mortgage prepayment, or expiration of restrictions on use. SB 1069 Page 5 (iv) The unit is in decent, safe, and sanitary condition at the time of occupancy. (v) At the time the unit is identified for preservation it is available at affordable cost to persons or families of low- or very low income. (3) This subdivision does not apply to any city or county that, during the current or immediately prior planning period, as defined by Section 65588, has not met any of its share of the regional need for affordable housing, as defined in Section 65584, for low- and very low income households. A city or county shall document for any housing unit that a building permit has been issued and all development and permit fees have been paid or the unit is eligible to be lawfully occupied. (4) For purposes of this subdivision, “committed assistance” means that the city or county enters into a legally enforceable agreement during the period from the beginning of the projection period until the end of the second year of the planning period that obligates sufficient available funds to provide the assistance necessary to make the identified units affordable and that requires that the units be made available for occupancy within two years of the execution of the agreement. “Committed assistance” does not include tenant-based rental assistance. (5) For purposes of this subdivision, “net increase” includes only housing units provided committed assistance pursuant to subparagraph (A) or (B) of paragraph (2) in the current planning period, as defined in Section 65588, that were not provided committed assistance in the immediately prior planning period. (6) For purposes of this subdivision, “the time the unit is identified” means the earliest time when any city or county agent, acting on behalf of a public entity, has proposed in writing or has proposed orally or in writing to the property owner, that the unit be considered for substantial rehabilitation, acquisition, or preservation. (7) In the third year of the planning period, as defined by Section 65588, in the report required pursuant to Section 65400, each city or county that has included in its housing element a program to provide units pursuant to subparagraph (A), (B), or (C) of paragraph (2) shall report in writing to the legislative body, and to the department within 30 days of making its report to the legislative body, on its progress in providing units pursuant to this subdivision. The report shall identify the specific units for which committed assistance has been provided or which have been made available to low- and very low income households, and it shall adequately document how each unit complies with this subdivision. If, by July 1 of the third year of the planning period, the city or county has not entered into an enforceable agreement of committed assistance for all units specified in the programs adopted pursuant to subparagraph (A), (B), or (C) of paragraph (2), the city or county shall, not later than July 1 of the fourth year of the planning period, adopt an amended housing element in accordance with Section 65585, identifying additional adequate sites pursuant to paragraph (1) of subdivision (c) of Section 65583 sufficient to accommodate the number of units for which committed assistance was not provided. If a city or county does not amend its housing element to identify adequate sites to address any shortfall, or fails to complete the rehabilitation, acquisition, purchase of SB 1069 Page 6 affordability covenants, or the preservation of any housing unit within two years after committed assistance was provided to that unit, it shall be prohibited from identifying units pursuant to subparagraph (A), (B), or (C) of paragraph (2) in the housing element that it adopts for the next planning period, as defined in Section 65588, above the number of units actually provided or preserved due to committed assistance. (d) A city or county may reduce its share of the regional housing need by the number of units built between the start of the projection period and the deadline for adoption of the housing element. If the city or county reduces its share pursuant to this subdivision, the city or county shall include in the housing element a description of the methodology for assigning those housing units to an income category based on actual or projected sales price, rent levels, or other mechanisms establishing affordability. SEC. 3. Section 65589.4 of the Government Code is amended to read: 65589.4. (a) An attached housing development shall be a permitted use not subject to a conditional use permit on any parcel zoned for an attached housing development if local law so provides or if it satisfies the requirements of subdivision (b) and either of the following: (1) The attached housing development satisfies the criteria of Section 21159.22, 21159.23, or 21159.24 of the Public Resources Code. (2) The attached housing development meets all of the following criteria: (A) The attached housing development is subject to a discretionary decision other than a conditional use permit and a negative declaration or mitigated negative declaration has been adopted for the attached housing development under the California Environmental Quality Act (Division 13 (commencing with Section 21000) of the Public Resources Code). If no public hearing is held with respect to the discretionary decision, then the negative declaration or mitigated negative declaration for the attached housing development may be adopted only after a public hearing to receive comments on the negative declaration or mitigated negative declaration. (B) The attached housing development is consistent with both the jurisdiction’s zoning ordinance and general plan as it existed on the date the application was deemed complete, except that an attached housing development shall not be deemed to be inconsistent with the zoning designation for the site if that zoning designation is inconsistent with the general plan only because the attached housing development site has not been rezoned to conform with the most recent adopted general plan. (C) The attached housing development is located in an area that is covered by one of the following documents that has been adopted by the jurisdiction within five years of the date the application for the attached housing development was deemed complete: SB 1069 Page 7 (i) A general plan. (ii) A revision or update to the general plan that includes at least the land use and circulation elements. (iii) An applicable community plan. (iv) An applicable specific plan. (D) The attached housing development consists of not more than 100 residential units with a minimum density of not less than 12 units per acre or a minimum density of not less than eight units per acre if the attached housing development consists of four or fewer units. (E) The attached housing development is located in an urbanized area as defined in Section 21071 of the Public Resources Code or within a census-defined place with a population density of at least 5,000 persons per square mile or, if the attached housing development consists of 50 or fewer units, within an incorporated city with a population density of at least 2,500 persons per square mile and a total population of at least 25,000 persons. (F) The attached housing development is located on an infill site as defined in Section 21061.0.5 of the Public Resources Code. (b) At least 10 percent of the units of the attached housing development shall be available at affordable housing cost to very low income households, as defined in Section 50105 of the Health and Safety Code, or at least 20 percent of the units of the attached housing development shall be available at affordable housing cost to lower income households, as defined in Section 50079.5 of the Health and Safety Code, or at least 50 percent of the units of the attached housing development available at affordable housing cost to moderate-income households, consistent with Section 50052.5 of the Health and Safety Code. The developer of the attached housing development shall provide sufficient legal commitments to the local agency to ensure the continued availability and use of the housing units for very low, low-, or moderate-income households for a period of at least 30 years. (c) Nothing in this section shall prohibit a local agency from applying design and site review standards in existence on the date the application was deemed complete. (d) The provisions of this section are independent of any obligation of a jurisdiction pursuant to subdivision (c) of Section 65583 to identify multifamily sites developable by right. (e) This section does not apply to the issuance of coastal development permits pursuant to the California Coastal Act (Division 20 (commencing with Section 30000) of the Public Resources Code). (f) This section does not relieve a public agency from complying with the California Environmental Quality Act (Division 13 (commencing with Section 21000) of the Public Resources Code) or relieve an applicant or public agency from complying with the Subdivision Map Act (Division 2 (commencing with Section 66473)). SB 1069 Page 8 (g) This section is applicable to all cities and counties, including charter cities, because the Legislature finds that the lack of affordable housing is of vital statewide importance, and thus a matter of statewide concern. (h) For purposes of this section, “attached housing development” means a newly constructed or substantially rehabilitated structure containing two or more dwelling units and consisting only of residential units, but does not include a second an accessory dwelling unit, as defined by paragraph (4) of subdivision (h) (j) of Section 65852.2, or the conversion of an existing structure to condominiums. SEC. 4. Section 65852.150 of the Government Code is amended to read: 65852.150. (a) The Legislature finds and declares all of the following: (1) Accessory dwelling units are a valuable form of housing in California. The (2) Legislature finds and declares that second units are a valuable form of housing in California. Second units Accessory dwelling units provide housing for family members, students, the elderly, in-home health care providers, the disabled, and others, at below market prices within existing neighborhoods. Homeowners who create second units benefit from added income, and an increased sense of security. (3) Homeowners who create accessory dwelling units benefit from added income, and an increased sense of security. (4) Allowing accessory dwelling units in single-family or multifamily residential zones provides additional rental housing stock in California. (5) California faces a severe housing crisis. (6) The state is falling far short of meeting current and future housing demand with serious consequences for the state’s economy, our ability to build green infill consistent with state greenhouse gas reduction goals, and the well-being of our citizens, particularly lower and middle-income earners. (7) Accessory dwelling units offer lower cost housing to meet the needs of existing and future residents within existing neighborhoods, while respecting architectural character. (8) Accessory dwelling units are, therefore, an essential component of California’s housing supply. (b) It is the intent of the Legislature that any second-unit ordinances an accessory dwelling unit ordinance adopted by a local agencies have agency has the effect of providing for the creation of second accessory dwelling units and that provisions in these ordinances this ordinance relating to matters including unit size, parking, fees fees, and other requirements, SB 1069 Page 9 are not so arbitrary, excessive, or burdensome so as to unreasonably restrict the ability of homeowners to create second accessory dwelling units in zones in which they are authorized by local ordinance. SEC. 5. Section 65852.2 of the Government Code is amended to read: 65852.2. (a) (1) Any A local agency may, by ordinance, provide for the creation of second accessory dwelling units in single-family and multifamily residential zones. The ordinance may shall do any all of the following: (A) Designate areas within the jurisdiction of the local agency where second accessory dwelling units may be permitted. The designation of areas may be based on criteria, that may include, but are not limited to, the adequacy of water and sewer services and the impact of second accessory dwelling units on traffic flow. flow and public safety. (B) Impose standards on second accessory dwelling units that include, but are not limited to, parking, height, setback, lot coverage, architectural review, maximum size of a unit, and standards that prevent adverse impacts on any real property that is listed in the California Register of Historic Places. (C) Provide that second accessory dwelling units do not exceed the allowable density for the lot upon which the second accessory dwelling unit is located, and that second accessory dwelling units are a residential use that is consistent with the existing general plan and zoning designation for the lot. (2) The ordinance shall not be considered in the application of any local ordinance, policy, or program to limit residential growth. (3) When a local agency receives its first application on or after July 1, 2003, for a permit pursuant to this subdivision, the application shall be considered ministerially without discretionary review or a hearing, notwithstanding Section 65901 or 65906 or any local ordinance regulating the issuance of variances or special use permits. Nothing in this paragraph may be construed to require a local government to adopt or amend an ordinance for the creation of second units. permits, within 120 days of submittal of a complete building permit application. A local agency may charge a fee to reimburse it for costs that it incurs as a result of amendments to this paragraph enacted during the 2001–02 Regular Session of the Legislature, including the costs of adopting or amending any ordinance that provides for the creation of second accessory dwelling units. (b) (1) When a local agency which that has not adopted an ordinance governing second accessory dwelling units in accordance with subdivision (a) or (c) receives its first application on or after July 1, 1983, for a permit pursuant to this subdivision, the local agency shall accept the application and approve or disapprove the application ministerially without discretionary review pursuant to this subdivision unless it adopts an ordinance in accordance SB 1069 Page 10 with subdivision (a) or (c) within 120 days after receiving the application. Notwithstanding Section 65901 or 65906, every local agency shall grant a variance or special use permit for ministerially approve the creation of a second an accessory dwelling unit if the second accessory dwelling unit complies with all of the following: (A) The unit is not intended for sale separate from the primary residence and may be rented. (B) The lot is zoned for single-family or multifamily use. (C) The lot contains an existing single-family dwelling. (D) The second accessory dwelling unit is either attached to the existing dwelling and located within the living area of the existing dwelling or detached from the existing dwelling and located on the same lot as the existing dwelling. (E) The increased floor area of an attached second accessory dwelling unit shall not exceed 30 50 percent of the existing living area. area, with a maximum increase in floor area of 1,200 square feet. (F) The total area of floorspace for a detached second accessory dwelling unit shall not exceed 1,200 square feet. (G) Requirements relating to height, setback, lot coverage, architectural review, site plan review, fees, charges, and other zoning requirements generally applicable to residential construction in the zone in which the property is located. (H) Local building code requirements which that apply to detached dwellings, as appropriate. (I) Approval by the local health officer where a private sewage disposal system is being used, if required. (2) No other local ordinance, policy, or regulation shall be the basis for the denial of a building permit or a use permit under this subdivision. (3) This subdivision establishes the maximum standards that local agencies shall use to evaluate proposed second accessory dwelling units on lots zoned for residential use which that contain an existing single-family dwelling. No additional standards, other than those provided in this subdivision or subdivision (a), shall be utilized or imposed, except that a local agency may require an applicant for a permit issued pursuant to this subdivision to be an owner- occupant. owner-occupant or that the property be used for rentals of terms longer than 30 days. (4) No changes in zoning ordinances or other ordinances or any changes in the general plan shall be required to implement this subdivision. Any A local agency may amend its zoning ordinance or general plan to incorporate the policies, procedures, or other provisions applicable to the creation of second accessory dwelling units if these provisions are consistent with the limitations of this subdivision. SB 1069 Page 11 (5) A second unit which conforms to the requirements of An accessory dwelling unit that conforms to this subdivision shall not be considered to exceed the allowable density for the lot upon which it is located, and shall be deemed to be a residential use which that is consistent with the existing general plan and zoning designations for the lot. The second accessory dwelling units shall not be considered in the application of any local ordinance, policy, or program to limit residential growth. (c) No local agency shall adopt an ordinance which totally precludes second units within single- family or multifamily zoned areas unless the ordinance contains findings acknowledging that the ordinance may limit housing opportunities of the region and further contains findings that specific adverse impacts on the public health, safety, and welfare that would result from allowing second units within single-family and multifamily zoned areas justify adopting the ordinance. (d) (c) A local agency may establish minimum and maximum unit size requirements for both attached and detached second accessory dwelling units. No minimum or maximum size for a second an accessory dwelling unit, or size based upon a percentage of the existing dwelling, shall be established by ordinance for either attached or detached dwellings which that does not otherwise permit at least an efficiency unit to be constructed in compliance with local development standards. Accessory dwelling units shall not be required to provide fire sprinklers if they are not required for the primary residence. (e) (d) Parking requirements for second accessory dwelling units shall not exceed one parking space per unit or per bedroom. Additional parking These spaces may be required provided that a finding is made that the additional parking requirements are directly related to the use of the second unit and are consistent with existing neighborhood standards applicable to existing dwellings. provided as tandem parking on an existing driveway. Off-street parking shall be permitted in setback areas in locations determined by the local agency or through tandem parking, unless specific findings are made that parking in setback areas or tandem parking is not feasible based upon specific site or regional topographical or fire and life safety conditions, or that it is not permitted anywhere else in the jurisdiction. conditions. This subdivision shall not apply to a unit that is described in subdivision (e). (e) Notwithstanding any other law, a local agency, whether or not it has adopted an ordinance governing accessory dwelling units in accordance with subdivision (a), shall not impose parking standards for an accessory dwelling unit in any of the following instances: (1) The accessory dwelling unit is located within one-half mile of public transit. (2) The accessory dwelling unit is located within an architecturally and historically significant historic district. (3) The accessory dwelling unit is part of the existing primary residence or an existing accessory structure. SB 1069 Page 12 (4) When on-street parking permits are required but not offered to the occupant of the accessory dwelling unit. (5) When there is a car share vehicle located within one block of the accessory dwelling unit. (f) Notwithstanding subdivisions (a) to (e), inclusive, a local agency shall ministerially approve an application for a building permit to create within a single-family residential zone one accessory dwelling unit per single-family lot if the unit is contained within the existing space of a single-family residence or accessory structure, has independent exterior access from the existing residence, and the side and rear setbacks are sufficient for fire safety. Accessory dwelling units shall not be required to provide fire sprinklers if they are not required for the primary residence. (f) (g) (1) Fees charged for the construction of second accessory dwelling units shall be determined in accordance with Chapter 5 (commencing with Section 66000). 66000) and Chapter 7 (commencing with Section 66012). (2) Accessory dwelling units shall not be considered new residential uses for the purposes of calculating local agency connection fees or capacity charges for utilities, including water and sewer service. (A) For an accessory dwelling unit described in subdivision (f), a local agency shall not require the applicant to install a new or separate utility connection directly between the accessory dwelling unit and the utility or impose a related connection fee or capacity charge. (B) For an accessory dwelling unit that is not described in subdivision (f), a local agency may require a new or separate utility connection directly between the accessory dwelling unit and the utility. Consistent with Section 66013, the connection may be subject to a connection fee or capacity charge that shall be proportionate to the burden of the proposed accessory dwelling unit, based upon either its size or the number of its plumbing fixtures, upon the water or sewer system. This fee or charge shall not exceed the reasonable cost of providing this service. (g) (h) This section does not limit the authority of local agencies to adopt less restrictive requirements for the creation of second accessory dwelling units. (h) (i) Local agencies shall submit a copy of the ordinances adopted pursuant to subdivision (a) or (c) to the Department of Housing and Community Development within 60 days after adoption. (i) (j) As used in this section, the following terms mean: (1) “Living area,” area” means the interior habitable area of a dwelling unit including basements and attics but does not include a garage or any accessory structure. (2) “Local agency” means a city, county, or city and county, whether general law or chartered. (3) For purposes of this section, “neighborhood” has the same meaning as set forth in Section 65589.5. SB 1069 Page 13 (4) “Second “Accessory dwelling unit” means an attached or a detached residential dwelling unit which provides complete independent living facilities for one or more persons. It shall include permanent provisions for living, sleeping, eating, cooking, and sanitation on the same parcel as the single-family dwelling is situated. A second An accessory dwelling unit also includes the following: (A) An efficiency unit, as defined in Section 17958.1 of Health and Safety Code. (B) A manufactured home, as defined in Section 18007 of the Health and Safety Code. (j) (k) Nothing in this section shall be construed to supersede or in any way alter or lessen the effect or application of the California Coastal Act (Division 20 (commencing with Section 30000) of the Public Resources Code), except that the local government shall not be required to hold public hearings for coastal development permit applications for second accessory dwelling units. SEC. 5.5. Section 65852.2 of the Government Code is amended to read: 65852.2. (a) (1) Any A local agency may, by ordinance, provide for the creation of second accessory dwelling units in single-family and multifamily residential zones. The ordinance may shall do any all of the following: (A) Designate areas within the jurisdiction of the local agency where second accessory dwelling units may be permitted. The designation of areas may be based on criteria, that may include, but are not limited to, the adequacy of water and sewer services and the impact of second accessory dwelling units on traffic flow. flow and public safety. (B) (i) Impose standards on second accessory dwelling units that include, but are not limited to, parking, height, setback, lot coverage, landscape, architectural review, maximum size of a unit, and standards that prevent adverse impacts on any real property that is listed in the California Register of Historic Places. (ii) Notwithstanding clause (i), a local agency may reduce or eliminate parking requirements for any accessory dwelling unit located within its jurisdiction. (C) Provide that second accessory dwelling units do not exceed the allowable density for the lot upon which the second accessory dwelling unit is located, and that second accessory dwelling units are a residential use that is consistent with the existing general plan and zoning designation for the lot. (D) Require the accessory dwelling units to comply with all of the following: (i) The unit is not intended for sale separate from the primary residence and may be rented. SB 1069 Page 14 (ii) The lot is zoned for single-family or multifamily use and contains an existing, single-family dwelling. (iii) The accessory dwelling unit is either attached to the existing dwelling or located within the living area of the existing dwelling or detached from the existing dwelling and located on the same lot as the existing dwelling. (iv) The increased floor area of an attached accessory dwelling unit shall not exceed 50 percent of the existing living area, with a maximum increase in floor area of 1,200 square feet. (v) The total area of floorspace for a detached accessory dwelling unit shall not exceed 1,200 square feet. (vi) No passageway shall be required in conjunction with the construction of an accessory dwelling unit. (vii) No setback shall be required for an existing garage that is converted to a accessory dwelling unit, and a setback of no more than five feet from the side and rear lot lines shall be required for an accessory dwelling unit that is constructed above a garage. (viii) Local building code requirements that apply to detached dwellings, as appropriate. (ix) Approval by the local health officer where a private sewage disposal system is being used, if required. (x) (I) Parking requirements for accessory dwelling units shall not exceed one parking space per unit or per bedroom. These spaces may be provided as tandem parking on an existing driveway. (II) Offstreet parking shall be permitted in setback areas in locations determined by the local agency or through tandem parking, unless specific findings are made that parking in setback areas or tandem parking is not feasible based upon specific site or regional topographical or fire and life safety conditions, or that it is not permitted anywhere else in the jurisdiction. (III) This clause shall not apply to a unit that is described in subdivision (d). (xi) When a garage, carport, or covered parking structure is demolished in conjunction with the construction of an accessory dwelling unit, and the local agency requires that those offstreet parking spaces be replaced, the replacement spaces may be located in any configuration on the same lot as the accessory dwelling unit, including, but not limited to, as covered spaces, uncovered spaces, or tandem spaces, or by the use of mechanical automobile parking lifts. This clause shall not apply to a unit that is described in subdivision (d). (2) The ordinance shall not be considered in the application of any local ordinance, policy, or program to limit residential growth. (3) When a local agency receives its first application on or after July 1, 2003, for a permit pursuant to this subdivision, the application shall be considered ministerially without discretionary review or a hearing, notwithstanding Section 65901 or 65906 or any local SB 1069 Page 15 ordinance regulating the issuance of variances or special use permits. Nothing in this paragraph may be construed to require a local government to adopt or amend an ordinance for the creation of second units. permits, within 120 days after receiving the application. A local agency may charge a fee to reimburse it for costs that it incurs as a result of amendments to this paragraph enacted during the 2001–02 Regular Session of the Legislature, including the costs of adopting or amending any ordinance that provides for the creation of second units. an accessory dwelling unit. (b) (4) (1) An When existing ordinance governing the creation of an accessory dwelling unit by a local agency which has not adopted an ordinance governing second units in accordance with subdivision (a) or (c) receives its first application on or after July 1, 1983, for a permit pursuant to this subdivision, the local agency shall accept the application and approve or disapprove the application ministerially without discretionary review pursuant to this subdivision unless it or an accessory dwelling ordinance adopted by a local agency subsequent to the effective date of the act adding this paragraph shall provide an approval process that includes only ministerial provisions for the approval of accessory dwelling units and shall not include any discretionary processes, provisions, or requirements for those units, except as otherwise provided in this subdivision. In the event that a local agency has an existing accessory dwelling unit ordinance that fails to meet the requirements of this subdivision, that ordinance shall be null and void upon the effective date of the act adding this paragraph and that agency shall thereafter apply the standards established in this subdivision for the approval of accessory dwelling units, unless and until the agency adopts an ordinance in accordance with subdivision (a) or (c) within 120 days after receiving the application. Notwithstanding Section 65901 or 65906, every local agency shall grant a variance or special use permit for the creation of a second unit if the second unit complies with all of the following: that complies with this section. (A) The unit is not intended for sale and may be rented. (B) The lot is zoned for single-family or multifamily use. (C) The lot contains an existing single-family dwelling. (D) The second unit is either attached to the existing dwelling and located within the living area of the existing dwelling or detached from the existing dwelling and located on the same lot as the existing dwelling. (E) The increased floor area of an attached second unit shall not exceed 30 percent of the existing living area. (F) The total area of floorspace for a detached second unit shall not exceed 1,200 square feet. (G) Requirements relating to height, setback, lot coverage, architectural review, site plan review, fees, charges, and other zoning requirements generally applicable to residential construction in the zone in which the property is located. (H) Local building code requirements which apply to detached dwellings, as appropriate. SB 1069 Page 16 (I) Approval by the local health officer where a private sewage disposal system is being used, if required. (2) (5) No other local ordinance, policy, or regulation shall be the basis for the denial of a building permit or a use permit under this subdivision. (3) (6) This subdivision establishes the maximum standards that local agencies shall use to evaluate proposed second units on lots a proposed accessory dwelling unit on a lot zoned for residential use which contain that contains an existing single-family dwelling. No additional standards, other than those provided in this subdivision or subdivision (a), subdivision, shall be utilized or imposed, except that a local agency may require an applicant for a permit issued pursuant to this subdivision to be an owner-occupant. owner-occupant or that the property be used for rentals of terms longer than 30 days. (4) (7) No changes in zoning ordinances or other ordinances or any changes in the general plan shall be required to implement this subdivision. Any A local agency may amend its zoning ordinance or general plan to incorporate the policies, procedures, or other provisions applicable to the creation of second units an accessory dwelling unit if these provisions are consistent with the limitations of this subdivision. (5) (8) A second unit which conforms to the requirements of An accessory dwelling unit that conforms to this subdivision shall be deemed to be an accessory use or an accessory building and shall not be considered to exceed the allowable density for the lot upon which it is located, and shall be deemed to be a residential use which that is consistent with the existing general plan and zoning designations for the lot. The second units accessory dwelling unit shall not be considered in the application of any local ordinance, policy, or program to limit residential growth. (c) (b) No When a local agency shall adopt an ordinance which totally precludes second units within single-family or multifamily zoned areas unless the ordinance contains findings acknowledging that the ordinance may limit housing opportunities of the region and further contains findings that specific adverse impacts on the public health, safety, and welfare that would result from allowing second units within single-family and multifamily zoned areas justify adopting the ordinance. that has not adopted an ordinance governing accessory dwelling units in accordance with subdivision (a) receives its first application on or after July 1, 1983, for a permit to create an accessory dwelling unit pursuant to this subdivision, the local agency shall accept the application and approve or disapprove the application ministerially without discretionary review pursuant to subdivision (a) within 120 days after receiving the application. (d) (c) A local agency may establish minimum and maximum unit size requirements for both attached and detached second accessory dwelling units. No minimum or maximum size for a second an accessory dwelling unit, or size based upon a percentage of the existing dwelling, shall be established by ordinance for either attached or detached dwellings which that does not permit at least an efficiency unit to be constructed in compliance with local development standards. Accessory dwelling units shall not be required to provide fire sprinklers if they are not required for the primary residence. SB 1069 Page 17 (d) Notwithstanding any other law, a local agency, whether or not it has adopted an ordinance governing accessory dwelling units in accordance with subdivision (a), shall not impose parking standards for an accessory dwelling unit in any of the following instances: (1) The accessory dwelling unit is located within one-half mile of public transit. (2) The accessory dwelling unit is located within an architecturally and historically significant historic district. (3) The accessory dwelling unit is part of the existing primary residence or an existing accessory structure. (4) When on-street parking permits are required but not offered to the occupant of the accessory dwelling unit. (5) When there is a car share vehicle located within one block of the accessory dwelling unit. (e) Parking requirements for second units shall not exceed one parking space per unit or per bedroom. Additional parking may be required provided that a finding is made that the additional parking requirements are directly related to the use of the second unit and are consistent with existing neighborhood standards applicable to existing dwellings. Off-street parking shall be permitted in setback areas in locations determined by the local agency or through tandem parking, unless specific findings are made that parking in setback areas or tandem parking is not feasible based upon specific site or regional topographical or fire and life safety conditions, or that it is not permitted anywhere else in the jurisdiction. Notwithstanding subdivisions (a) to (d), inclusive, a local agency shall ministerially approve an application for a building permit to create within a single-family residential zone one accessory dwelling unit per single-family lot if the unit is contained within the existing space of a single-family residence or accessory structure, has independent exterior access from the existing residence, and the side and rear setbacks are sufficient for fire safety. Accessory dwelling units shall not be required to provide fire sprinklers if they are not required for the primary residence. (f) (1) Fees charged for the construction of second accessory dwelling units shall be determined in accordance with Chapter 5 (commencing with Section 66000). 66000) and Chapter 7 (commencing with Section 66012). (2) Accessory dwelling units shall not be considered new residential uses for the purposes of calculating local agency connection fees or capacity charges for utilities, including water and sewer service. (A) For an accessory dwelling unit described in subdivision (e), a local agency shall not require the applicant to install a new or separate utility connection directly between the accessory dwelling unit and the utility or impose a related connection fee or capacity charge. (B) For an accessory dwelling unit that is not described in subdivision (e), a local agency may require a new or separate utility connection directly between the accessory dwelling unit and the utility. Consistent with Section 66013, the connection may be subject to a connection fee or SB 1069 Page 18 capacity charge that shall be proportionate to the burden of the proposed accessory dwelling unit, based upon either its size or the number of its plumbing fixtures, upon the water or sewer system. This fee or charge shall not exceed the reasonable cost of providing this service. (g) This section does not limit the authority of local agencies to adopt less restrictive requirements for the creation of second units. an accessory dwelling unit. (h) Local agencies shall submit a copy of the ordinances ordinance adopted pursuant to subdivision (a) or (c) to the Department of Housing and Community Development within 60 days after adoption. (i) As used in this section, the following terms mean: (1) “Living area,” area” means the interior habitable area of a dwelling unit including basements and attics but does not include a garage or any accessory structure. (2) “Local agency” means a city, county, or city and county, whether general law or chartered. (3) For purposes of this section, “neighborhood” has the same meaning as set forth in Section 65589.5. (4) “Second “Accessory dwelling unit” means an attached or a detached residential dwelling unit which provides complete independent living facilities for one or more persons. It shall include permanent provisions for living, sleeping, eating, cooking, and sanitation on the same parcel as the single-family dwelling is situated. A second An accessory dwelling unit also includes the following: (A) An efficiency unit, as defined in Section 17958.1 of Health and Safety Code. (B) A manufactured home, as defined in Section 18007 of the Health and Safety Code. (5) “Passageway” means a pathway that is unobstructed clear to the sky and extends from a street to one entrance of the accessory dwelling unit. (j) Nothing in this section shall be construed to supersede or in any way alter or lessen the effect or application of the California Coastal Act (Division 20 (commencing with Section 30000) of the Public Resources Code), except that the local government shall not be required to hold public hearings for coastal development permit applications for second accessory dwelling units. SEC. 6. Section 66412.2 of the Government Code is amended to read: 66412.2. This division shall not apply to the construction, financing, or leasing of dwelling units pursuant to Section 65852.1 or second accessory dwelling units pursuant to Section 65852.2, but this division shall be applicable to the sale or transfer, but not leasing, of those units. SB 1069 Page 19 SEC. 7. Section 5.5 of this bill incorporates amendments to Section 65852.2 of the Government Code proposed by both this bill and Assembly Bill 2299. It shall only become operative if (1) both bills are enacted and become effective on or before January 1, 2017, (2) each bill amends Section 65852.2 of the Government Code, and (3) this bill is enacted after Assembly Bill 2299, in which case Section 5 of this bill shall not become operative. SEC. 8. No reimbursement is required by this act pursuant to Section 6 of Article XIII B of the California Constitution because a local agency or school district has the authority to levy service charges, fees, or assessments sufficient to pay for the program or level of service mandated by this act, within the meaning of Section 17556 of the Government Code. AB 2299 Page 1 AB-2299 Land use: housing: 2nd units. (2015-2016) SECTION 1. Section 65852.2 of the Government Code is amended to read: 65852.2. (a) (1) Any A local agency may, by ordinance, provide for the creation of second accessory dwelling units in single-family and multifamily residential zones. The ordinance may shall do any all of the following: (A) Designate areas within the jurisdiction of the local agency where second accessory dwelling units may be permitted. The designation of areas may be based on criteria, that may include, but are not limited to, the adequacy of water and sewer services and the impact of second accessory dwelling units on traffic flow. flow and public safety. (B) Impose standards on second accessory dwelling units that include, but are not limited to, parking, height, setback, lot coverage, landscape, architectural review, maximum size of a unit, and standards that prevent adverse impacts on any real property that is listed in the California Register of Historic Places. (C) Notwithstanding subparagraph (B), a local agency may reduce or eliminate parking requirements for any accessory dwelling unit located within its jurisdiction. (C) (D) Provide that second accessory dwelling units do not exceed the allowable density for the lot upon which the second accessory dwelling unit is located, and that second accessory dwelling units are a residential use that is consistent with the existing general plan and zoning designation for the lot. (E) Require the accessory dwelling units to comply with all of the following: (i) The unit is not intended for sale separate from the primary residence and may be rented. (ii) The lot is zoned for single-family or multifamily use. (iii) The accessory dwelling unit is either attached to the existing dwelling or located within the living area of the existing dwelling or detached from the existing dwelling and located on the same lot as the existing dwelling. (iv) The increased floor area of an attached accessory dwelling unit shall not exceed 50 percent of the existing living area. (v) The total area of floorspace for a detached accessory dwelling unit shall not exceed 1,200 square feet. (vi) No passageway shall be required in conjunction with the construction of an accessory dwelling unit. AB 2299 Page 2 (vii) No setback shall be required for an existing garage that is converted to a accessory dwelling unit, and a setback of no more than five feet from the side and rear lot lines shall be required for an accessory dwelling unit that is constructed above a garage. (viii) Local building code requirements that apply to detached dwellings, as appropriate. (ix) Approval by the local health officer where a private sewage disposal system is being used, if required. (x) (I) Parking requirements for accessory dwelling units shall not exceed one parking space per unit or per bedroom. These spaces may be provided as tandem parking on an existing driveway. (II) Offstreet parking shall be permitted in setback areas in locations determined by the local agency or through tandem parking, unless specific findings are made that parking in setback areas or tandem parking is not feasible based upon specific site or regional topographical or fire and life safety conditions, or that it is not permitted anywhere else in the jurisdiction. (xi) When a garage, carport, or covered parking structure is demolished in conjunction with the construction of an accessory dwelling unit, and the local agency requires that those offstreet parking spaces be replaced, the replacement spaces may be located in any configuration on the same lot as the accessory dwelling unit, including, but not limited to, as covered spaces, uncovered spaces, or tandem spaces, or by the use of mechanical automobile parking lifts. (2) The ordinance shall not be considered in the application of any local ordinance, policy, or program to limit residential growth. (3) When a local agency receives its first application on or after July 1, 2003, for a permit pursuant to this subdivision, the application shall be considered ministerially without discretionary review or a hearing, notwithstanding Section 65901 or 65906 or any local ordinance regulating the issuance of variances or special use permits. Nothing in this paragraph may be construed to require a local government to adopt or amend an ordinance for the creation of second units. permits, within 120 days after receiving the application. A local agency may charge a fee to reimburse it for costs that it incurs as a result of amendments to this paragraph enacted during the 2001–02 Regular Session of the Legislature, including the costs of adopting or amending any ordinance that provides for the creation of second accessory dwelling units. (b) (4) (1) Any When existing ordinance governing the creation of accessory dwelling units by a local agency which has not adopted an ordinance governing second units in accordance with subdivision (a) or (c) receives its first application on or after July 1, 1983, for a permit pursuant to this subdivision, the local agency shall accept the application and approve or disapprove the application ministerially without discretionary review pursuant to this subdivision unless it or any such ordinance adopted by a local agency subsequent to the effective date of the act adding this paragraph shall provide an approval process that includes only ministerial provisions for the approval of accessory dwelling units and shall not include any discretionary processes, provisions, or requirements for those units except as otherwise provided AB 2299 Page 3 in this subdivision. In the event that a local agency has an existing accessory dwelling unit ordinance that fails to meet the requirements of this subdivision, that ordinance shall be null and void upon the effective date of the act adding this paragraph and that agency shall thereafter apply the standards established in this subdivision for the approval of accessory dwelling units, unless and until the agency adopts an ordinance in accordance with subdivision (a) or (c) within 120 days after receiving the application. Notwithstanding Section 65901 or 65906, every local agency shall grant a variance or special use permit for the creation of a second unit if the second unit complies with all of the following: that complies with this section. (A) The unit is not intended for sale and may be rented. (B) The lot is zoned for single-family or multifamily use. (C) The lot contains an existing single-family dwelling. (D) The second unit is either attached to the existing dwelling and located within the living area of the existing dwelling or detached from the existing dwelling and located on the same lot as the existing dwelling. (E) The increased floor area of an attached second unit shall not exceed 30 percent of the existing living area. (F) The total area of floorspace for a detached second unit shall not exceed 1,200 square feet. (G) Requirements relating to height, setback, lot coverage, architectural review, site plan review, fees, charges, and other zoning requirements generally applicable to residential construction in the zone in which the property is located. (H) Local building code requirements which apply to detached dwellings, as appropriate. (I) Approval by the local health officer where a private sewage disposal system is being used, if required. (2) (5) No other local ordinance, policy, or regulation shall be the basis for the denial of a building permit or a use permit under this subdivision. (3) (6) This subdivision establishes the maximum standards that local agencies shall use to evaluate proposed second accessory dwelling units on lots zoned for residential use which that contain an existing single-family dwelling. No additional standards, other than those provided in this subdivision or subdivision (a), subdivision, shall be utilized or imposed, except that a local agency may require an applicant for a permit issued pursuant to this subdivision to be an owner-occupant. (4) (7) No changes in zoning ordinances or other ordinances or any changes in the general plan shall be required to implement this subdivision. Any A local agency may amend its zoning ordinance or general plan to incorporate the policies, procedures, or other provisions applicable to the creation of second accessory dwelling units if these provisions are consistent with the limitations of this subdivision. AB 2299 Page 4 (5) (8) A second unit which conforms to the requirements of An accessory dwelling unit that conforms to this subdivision shall be deemed to be an accessory use or an accessory building and shall not be considered to exceed the allowable density for the lot upon which it is located, and shall be deemed to be a residential use which that is consistent with the existing general plan and zoning designations for the lot. The second accessory dwelling units shall not be considered in the application of any local ordinance, policy, or program to limit residential growth. (c) (b) No When a local agency shall adopt an ordinance which totally precludes second units within single-family or multifamily zoned areas unless the ordinance contains findings acknowledging that the ordinance may limit housing opportunities of the region and further contains findings that specific adverse impacts on the public health, safety, and welfare that would result from allowing second units within single-family and multifamily zoned areas justify adopting the ordinance. that has not adopted an ordinance governing accessory dwelling units in accordance with subdivision (a) receives its first application on or after July 1, 1983, for a permit pursuant to this subdivision, the local agency shall accept the application and approve or disapprove the application ministerially without discretionary review pursuant to subdivision (a) within 120 days after receiving the application. (d) (c) A local agency may establish minimum and maximum unit size requirements for both attached and detached second accessory dwelling units. No minimum or maximum size for a second accessory dwelling unit, or size based upon a percentage of the existing dwelling, shall be established by ordinance for either attached or detached dwellings which that does not permit at least an efficiency unit to be constructed in compliance with local development standards. (e) Parking requirements for second units shall not exceed one parking space per unit or per bedroom. Additional parking may be required provided that a finding is made that the additional parking requirements are directly related to the use of the second unit and are consistent with existing neighborhood standards applicable to existing dwellings. Off-street parking shall be permitted in setback areas in locations determined by the local agency or through tandem parking, unless specific findings are made that parking in setback areas or tandem parking is not feasible based upon specific site or regional topographical or fire and life safety conditions, or that it is not permitted anywhere else in the jurisdiction. (f) (d) Fees charged for the construction of second accessory dwelling units shall be determined in accordance with Chapter 5 (commencing with Section 66000). (g) (e) This section does not limit the authority of local agencies to adopt less restrictive requirements for the creation of second units. accessory dwelling units, provided those requirements comply with subdivision (a). (h) (f) Local agencies shall submit a copy of the ordinances adopted pursuant to subdivision (a) or (c) to the Department of Housing and Community Development within 60 days after adoption. AB 2299 Page 5 (i) (g) As used in this section, the following terms mean: (1) “Living area,” area” means the interior habitable area of a dwelling unit including basements and attics but does not include a garage or any accessory structure. (2) “Local agency” means a city, county, or city and county, whether general law or chartered. (3) For purposes of this section, “neighborhood” has the same meaning as set forth in Section 65589.5. (4) “Second “Accessory dwelling unit” means an attached or a detached residential dwelling unit which provides complete independent living facilities for one or more persons. It shall include permanent provisions for living, sleeping, eating, cooking, and sanitation on the same parcel as the single-family dwelling is situated. A second An accessory dwelling unit also includes the following: (A) An efficiency unit, as defined in Section 17958.1 of Health and Safety Code. (B) A manufactured home, as defined in Section 18007 of the Health and Safety Code. (C) “Passageway” means a pathway that is unobstructed clear to the sky and extends from a street to one entrance of the accessory dwelling unit. (j) (h) Nothing in this section shall be construed to supersede or in any way alter or lessen the effect or application of the California Coastal Act (Division 20 (commencing with Section 30000) of the Public Resources Code), except that the local government shall not be required to hold public hearings for coastal development permit applications for second accessory dwelling units. SEC. 1.5. Section 65852.2 of the Government Code is amended to read: 65852.2. (a) (1) Any A local agency may, by ordinance, provide for the creation of second accessory dwelling units in single-family and multifamily residential zones. The ordinance may shall do any all of the following: (A) Designate areas within the jurisdiction of the local agency where second accessory dwelling units may be permitted. The designation of areas may be based on criteria, that may include, but are not limited to, the adequacy of water and sewer services and the impact of second accessory dwelling units on traffic flow. flow and public safety. (B) (i) Impose standards on second accessory dwelling units that include, but are not limited to, parking, height, setback, lot coverage, landscape, architectural review, maximum size of a unit, and standards that prevent adverse impacts on any real property that is listed in the California Register of Historic Places. AB 2299 Page 6 (ii) Notwithstanding clause (i), a local agency may reduce or eliminate parking requirements for any accessory dwelling unit located within its jurisdiction. (C) Provide that second accessory dwelling units do not exceed the allowable density for the lot upon which the second accessory dwelling unit is located, and that second accessory dwelling units are a residential use that is consistent with the existing general plan and zoning designation for the lot. (D) Require the accessory dwelling units to comply with all of the following: (i) The unit is not intended for sale separate from the primary residence and may be rented. (ii) The lot is zoned for single-family or multifamily use and contains an existing, single-family dwelling. (iii) The accessory dwelling unit is either attached to the existing dwelling or located within the living area of the existing dwelling or detached from the existing dwelling and located on the same lot as the existing dwelling. (iv) The increased floor area of an attached accessory dwelling unit shall not exceed 50 percent of the existing living area, with a maximum increase in floor area of 1,200 square feet. (v) The total area of floorspace for a detached accessory dwelling unit shall not exceed 1,200 square feet. (vi) No passageway shall be required in conjunction with the construction of an accessory dwelling unit. (vii) No setback shall be required for an existing garage that is converted to a accessory dwelling unit, and a setback of no more than five feet from the side and rear lot lines shall be required for an accessory dwelling unit that is constructed above a garage. (viii) Local building code requirements that apply to detached dwellings, as appropriate. (ix) Approval by the local health officer where a private sewage disposal system is being used, if required. (x) (I) Parking requirements for accessory dwelling units shall not exceed one parking space per unit or per bedroom. These spaces may be provided as tandem parking on an existing driveway. (II) Offstreet parking shall be permitted in setback areas in locations determined by the local agency or through tandem parking, unless specific findings are made that parking in setback areas or tandem parking is not feasible based upon specific site or regional topographical or fire and life safety conditions, or that it is not permitted anywhere else in the jurisdiction. (III) This clause shall not apply to a unit that is described in subdivision (d). AB 2299 Page 7 (xi) When a garage, carport, or covered parking structure is demolished in conjunction with the construction of an accessory dwelling unit, and the local agency requires that those offstreet parking spaces be replaced, the replacement spaces may be located in any configuration on the same lot as the accessory dwelling unit, including, but not limited to, as covered spaces, uncovered spaces, or tandem spaces, or by the use of mechanical automobile parking lifts. This clause shall not apply to a unit that is described in subdivision (d). (2) The ordinance shall not be considered in the application of any local ordinance, policy, or program to limit residential growth. (3) When a local agency receives its first application on or after July 1, 2003, for a permit pursuant to this subdivision, the application shall be considered ministerially without discretionary review or a hearing, notwithstanding Section 65901 or 65906 or any local ordinance regulating the issuance of variances or special use permits. Nothing in this paragraph may be construed to require a local government to adopt or amend an ordinance for the creation of second units. permits, within 120 days after receiving the application. A local agency may charge a fee to reimburse it for costs that it incurs as a result of amendments to this paragraph enacted during the 2001–02 Regular Session of the Legislature, including the costs of adopting or amending any ordinance that provides for the creation of second units. an accessory dwelling unit. (b) (4) (1) An When existing ordinance governing the creation of an accessory dwelling unit by a local agency which has not adopted an ordinance governing second units in accordance with subdivision (a) or (c) receives its first application on or after July 1, 1983, for a permit pursuant to this subdivision, the local agency shall accept the application and approve or disapprove the application ministerially without discretionary review pursuant to this subdivision unless it or an accessory dwelling ordinance adopted by a local agency subsequent to the effective date of the act adding this paragraph shall provide an approval process that includes only ministerial provisions for the approval of accessory dwelling units and shall not include any discretionary processes, provisions, or requirements for those units, except as otherwise provided in this subdivision. In the event that a local agency has an existing accessory dwelling unit ordinance that fails to meet the requirements of this subdivision, that ordinance shall be null and void upon the effective date of the act adding this paragraph and that agency shall thereafter apply the standards established in this subdivision for the approval of accessory dwelling units, unless and until the agency adopts an ordinance in accordance with subdivision (a) or (c) within 120 days after receiving the application. Notwithstanding Section 65901 or 65906, every local agency shall grant a variance or special use permit for the creation of a second unit if the second unit complies with all of the following: that complies with this section. (A) The unit is not intended for sale and may be rented. (B) The lot is zoned for single-family or multifamily use. (C) The lot contains an existing single-family dwelling. AB 2299 Page 8 (D) The second unit is either attached to the existing dwelling and located within the living area of the existing dwelling or detached from the existing dwelling and located on the same lot as the existing dwelling. (E) The increased floor area of an attached second unit shall not exceed 30 percent of the existing living area. (F) The total area of floorspace for a detached second unit shall not exceed 1,200 square feet. (G) Requirements relating to height, setback, lot coverage, architectural review, site plan review, fees, charges, and other zoning requirements generally applicable to residential construction in the zone in which the property is located. (H) Local building code requirements which apply to detached dwellings, as appropriate. (I) Approval by the local health officer where a private sewage disposal system is being used, if required. (2) (5) No other local ordinance, policy, or regulation shall be the basis for the denial of a building permit or a use permit under this subdivision. (3) (6) This subdivision establishes the maximum standards that local agencies shall use to evaluate proposed second units on lots a proposed accessory dwelling unit on a lot zoned for residential use which contain that contains an existing single-family dwelling. No additional standards, other than those provided in this subdivision or subdivision (a), subdivision, shall be utilized or imposed, except that a local agency may require an applicant for a permit issued pursuant to this subdivision to be an owner-occupant. owner-occupant or that the property be used for rentals of terms longer than 30 days. (4) (7) No changes in zoning ordinances or other ordinances or any changes in the general plan shall be required to implement this subdivision. Any A local agency may amend its zoning ordinance or general plan to incorporate the policies, procedures, or other provisions applicable to the creation of second units an accessory dwelling unit if these provisions are consistent with the limitations of this subdivision. (5) (8) A second unit which conforms to the requirements of An accessory dwelling unit that conforms to this subdivision shall be deemed to be an accessory use or an accessory building and shall not be considered to exceed the allowable density for the lot upon which it is located, and shall be deemed to be a residential use which that is consistent with the existing general plan and zoning designations for the lot. The second units accessory dwelling unit shall not be considered in the application of any local ordinance, policy, or program to limit residential growth. (c) (b) No When a local agency shall adopt an ordinance which totally precludes second units within single-family or multifamily zoned areas unless the ordinance contains findings acknowledging that the ordinance may limit housing opportunities of the region and further contains findings that specific adverse impacts on the public health, safety, and welfare that AB 2299 Page 9 would result from allowing second units within single-family and multifamily zoned areas justify adopting the ordinance. that has not adopted an ordinance governing accessory dwelling units in accordance with subdivision (a) receives its first application on or after July 1, 1983, for a permit to create an accessory dwelling unit pursuant to this subdivision, the local agency shall accept the application and approve or disapprove the application ministerially without discretionary review pursuant to subdivision (a) within 120 days after receiving the application. (d) (c) A local agency may establish minimum and maximum unit size requirements for both attached and detached second accessory dwelling units. No minimum or maximum size for a second an accessory dwelling unit, or size based upon a percentage of the existing dwelling, shall be established by ordinance for either attached or detached dwellings which that does not permit at least an efficiency unit to be constructed in compliance with local development standards. Accessory dwelling units shall not be required to provide fire sprinklers if they are not required for the primary residence. (d) Notwithstanding any other law, a local agency, whether or not it has adopted an ordinance governing accessory dwelling units in accordance with subdivision (a), shall not impose parking standards for an accessory dwelling unit in any of the following instances: (1) The accessory dwelling unit is located within one-half mile of public transit. (2) The accessory dwelling unit is located within an architecturally and historically significant historic district. (3) The accessory dwelling unit is part of the existing primary residence or an existing accessory structure. (4) When on-street parking permits are required but not offered to the occupant of the accessory dwelling unit. (5) When there is a car share vehicle located within one block of the accessory dwelling unit. (e) Parking requirements for second units shall not exceed one parking space per unit or per bedroom. Additional parking may be required provided that a finding is made that the additional parking requirements are directly related to the use of the second unit and are consistent with existing neighborhood standards applicable to existing dwellings. Off-street parking shall be permitted in setback areas in locations determined by the local agency or through tandem parking, unless specific findings are made that parking in setback areas or tandem parking is not feasible based upon specific site or regional topographical or fire and life safety conditions, or that it is not permitted anywhere else in the jurisdiction. Notwithstanding subdivisions (a) to (d), inclusive, a local agency shall ministerially approve an application for a building permit to create within a single-family residential zone one accessory dwelling unit per single-family lot if the unit is contained within the existing space of a single-family residence or accessory structure, has independent exterior access from the existing residence, and the side and rear setbacks are sufficient for fire safety. Accessory dwelling units shall not be required to provide fire sprinklers if they are not required for the primary residence. AB 2299 Page 10 (f) (1) Fees charged for the construction of second accessory dwelling units shall be determined in accordance with Chapter 5 (commencing with Section 66000). 66000) and Chapter 7 (commencing with Section 66012). (2) Accessory dwelling units shall not be considered new residential uses for the purposes of calculating local agency connection fees or capacity charges for utilities, including water and sewer service. (A) For an accessory dwelling unit described in subdivision (e), a local agency shall not require the applicant to install a new or separate utility connection directly between the accessory dwelling unit and the utility or impose a related connection fee or capacity charge. (B) For an accessory dwelling unit that is not described in subdivision (e), a local agency may require a new or separate utility connection directly between the accessory dwelling unit and the utility. Consistent with Section 66013, the connection may be subject to a connection fee or capacity charge that shall be proportionate to the burden of the proposed accessory dwelling unit, based upon either its size or the number of its plumbing fixtures, upon the water or sewer system. This fee or charge shall not exceed the reasonable cost of providing this service. (g) This section does not limit the authority of local agencies to adopt less restrictive requirements for the creation of second units. an accessory dwelling unit. (h) Local agencies shall submit a copy of the ordinances ordinance adopted pursuant to subdivision (a) or (c) to the Department of Housing and Community Development within 60 days after adoption. (i) As used in this section, the following terms mean: (1) “Living area,” area” means the interior habitable area of a dwelling unit including basements and attics but does not include a garage or any accessory structure. (2) “Local agency” means a city, county, or city and county, whether general law or chartered. (3) For purposes of this section, “neighborhood” has the same meaning as set forth in Section 65589.5. (4) “Second “Accessory dwelling unit” means an attached or a detached residential dwelling unit which provides complete independent living facilities for one or more persons. It shall include permanent provisions for living, sleeping, eating, cooking, and sanitation on the same parcel as the single-family dwelling is situated. A second An accessory dwelling unit also includes the following: (A) An efficiency unit, as defined in Section 17958.1 of Health and Safety Code. (B) A manufactured home, as defined in Section 18007 of the Health and Safety Code. (5) “Passageway” means a pathway that is unobstructed clear to the sky and extends from a street to one entrance of the accessory dwelling unit. AB 2299 Page 11 (j) Nothing in this section shall be construed to supersede or in any way alter or lessen the effect or application of the California Coastal Act (Division 20 (commencing with Section 30000) of the Public Resources Code), except that the local government shall not be required to hold public hearings for coastal development permit applications for second accessory dwelling units. SEC. 2. Section 1.5 of this bill incorporates amendments to Section 65852.2 of the Government Code proposed by both this bill and Senate Bill 1069. It shall only become operative if (1) both bills are enacted and become effective on or before January 1, 2017, (2) each bill amends Section 65852.2 of the Government Code, and (3) this bill is enacted after Senate Bill 1069, in which case Section 1 of this bill shall not become operative. SEC. 3. No reimbursement is required by this act pursuant to Section 6 of Article XIII B of the California Constitution because a local agency or school district has the authority to levy service charges, fees, or assessments sufficient to pay for the program or level of service mandated by this act, within the meaning of Section 17556 of the Government Code. AB 2406 Page 1 AB-2406 Housing: junior accessory dwelling units. (2015-2016) SECTION 1. Section 65852.22 is added to the Government Code, immediately following Section 65852.2, to read: 65852.22. (a) Notwithstanding Section 65852.2, a local agency may, by ordinance, provide for the creation of junior accessory dwelling units in single-family residential zones. The ordinance may require a permit to be obtained for the creation of a junior accessory dwelling unit, and shall do all of the following: (1) Limit the number of junior accessory dwelling units to one per residential lot zoned for single- family residences with a single-family residence already built on the lot. (2) Require owner-occupancy in the single-family residence in which the junior accessory dwelling unit will be permitted. The owner may reside in either the remaining portion of the structure or the newly created junior accessory dwelling unit. Owner-occupancy shall not be required if the owner is another governmental agency, land trust, or housing organization. (3) Require the recordation of a deed restriction, which shall run with the land, shall be filed with the permitting agency, and shall include both of the following: (A) A prohibition on the sale of the junior accessory dwelling unit separate from the sale of the single-family residence, including a statement that the deed restriction may be enforced against future purchasers. (B) A restriction on the size and attributes of the junior accessory dwelling unit that conforms with this section. (4) Require a permitted junior accessory dwelling unit to be constructed within the existing walls of the structure, and require the inclusion of an existing bedroom. (5) Require a permitted junior accessory dwelling to include a separate entrance from the main entrance to the structure, with an interior entry to the main living area. A permitted junior accessory dwelling may include a second interior doorway for sound attenuation. (6) Require the permitted junior accessory dwelling unit to include an efficiency kitchen, which shall include all of the following: (A) A sink with a maximum waste line diameter of 1.5 inches. (B) A cooking facility with appliances that do not require electrical service greater than 120 volts, or natural or propane gas. (C) A food preparation counter and storage cabinets that are of reasonable size in relation to the size of the junior accessory dwelling unit. AB 2406 Page 2 (b) (1) An ordinance shall not require additional parking as a condition to grant a permit. (2) This subdivision shall not be interpreted to prohibit the requirement of an inspection, including the imposition of a fee for that inspection, to determine whether the junior accessory dwelling unit is in compliance with applicable building standards. (c) An application for a permit pursuant to this section shall, notwithstanding Section 65901 or 65906 or any local ordinance regulating the issuance of variances or special use permits, be considered ministerially, without discretionary review or a hearing. A permit shall be issued within 120 days of submission of an application for a permit pursuant to this section. A local agency may charge a fee to reimburse the local agency for costs incurred in connection with the issuance of a permit pursuant to this section. (d) For the purposes of any fire or life protection ordinance or regulation, a junior accessory dwelling unit shall not be considered a separate or new dwelling unit. This section shall not be construed to prohibit a city, county, city and county, or other local public entity from adopting an ordinance or regulation relating to fire and life protection requirements within a single- family residence that contains a junior accessory dwelling unit so long as the ordinance or regulation applies uniformly to all single-family residences within the zone regardless of whether the single-family residence includes a junior accessory dwelling unit or not. (e) For the purposes of providing service for water, sewer, or power, including a connection fee, a junior accessory dwelling unit shall not be considered a separate or new dwelling unit. (f) This section shall not be construed to prohibit a local agency from adopting an ordinance or regulation, related to parking or a service or a connection fee for water, sewer, or power, that applies to a single-family residence that contains a junior accessory dwelling unit, so long as that ordinance or regulation applies uniformly to all single-family residences regardless of whether the single-family residence includes a junior accessory dwelling unit. (g) For purposes of this section, the following terms have the following meanings: (1) “Junior accessory dwelling unit” means a unit that is no more than 500 square feet in size and contained entirely within an existing single-family structure. A junior accessory dwelling unit may include separate sanitation facilities, or may share sanitation facilities with the existing structure. (2) “Local agency” means a city, county, or city and county, whether general law or chartered. SEC. 2. This act is an urgency statute necessary for the immediate preservation of the public peace, health, or safety within the meaning of Article IV of the Constitution and shall go into immediate effect. The facts constituting the necessity are: In order to allow local jurisdictions the ability to promulgate ordinances that create secure income for homeowners and secure housing for renters, at the earliest possible time, it is necessary for this act to take effect immediately. AB 2406 Page 3 Accessory Dwelling Unit (ADU) Requirements *Note: Other residential districts have different development standards 161014 jb 0131560 Rev. November 22, 2016 Development Standards Current Ordinance (R-1 Standards)* State Law Restrictions Staff Proposal Attached ADUs Maximum size of living area (attached) 450sf ▪ Not including covered parking ▪ Basement area Included Shall not exceed 50% of existing living area, with maximum increase of 1,200sf No Change Maximum house size (attached) 6,000sf (attached ADU included) No No Change Maximum height (attached) One story & 17ft No No Change Detached ADUs Minimum separation from main dwelling (detached) 12ft No Delete Maximum size of living area (detached) 900sf ▪ Not including covered parking ▪ Basement area included Not to exceed 1,200sf No Change Maximum height (detached) One story & 17ft No No Change Attached and Detached Lot coverage ▪ Equivalent to FAR for single story ▪ 35% for two story No No Change Accessory Dwelling Unit (ADU) Requirements *Note: Other residential districts have different development standards 161014 jb 0131560 Rev. November 22, 2016 Development Standards Current Ordinance (R-1 Standards)* State Law Restrictions Staff Proposal FAR ▪ .45 (1st 5,000sf) ▪ .30 (in excess of 5,000sf) No No Change Minimum lot size (attached & detached) 35% greater than minimum lot size for R-1 lots No No Change Parking ▪ 2 parking spaces/1 covered ▪ Cannot be in front setback ▪ Not closer than 10ft from street in street side setback ▪ Not to exceed 1 per unit or per bedroom ▪ May be located in setbacks or tandem, unless special findings ▪ No parking required for Junior ADU ▪ No parking required for ADU part of existing primary residence or existing accessory structure ▪ 1 per unit or 1 per bedroom, whichever is greater ▪ No parking required for junior units or retrofit of existing structure PUBLIC COMMENTS RECEIVED AS OF NOVEMBER 23, 2016 From: Steve Baker Date Received: 11/20/2016 I believe SDUs are an easy way to create more housing for couples or single people. However, they will probably also create more housing for families in palo alto, as empty nesters may move into SDUs on their own property and rent out their houses to newcomers. It seems like a win-win to me! I support removing the minimum lot size requirement for SDUs and also relaxing the FAR requirement for the purposes of SDUs. Thank you, Steve Baker From: Abby Boyd Date Received: 11/20/2016 Please address: First, is this instead of the single story overlay? Will neighborhoods with a single story overlay be changed to a less height restrictive zoning? I WANT TO KEEP THE SINGLE STORY OVERLAY. Houses in a cul-de-sac have parking issues, which include the ability of garbage and recycling containers being up out for pickup I don’t want people looking into my house and backyard. This privacy is a plus that is disappearing and does not need to disappear in Eichler neighborhoods I can’t plant trees to block neighbor homes or insure privacy. I have had to cut down trees because of telephone lines Will you increase traffic in residential areas? I already have cut through traffic and employees at the Jewish Campus parking on my street. Sunlight. I need it for my vegetable garden and I like to look at the sky. What about solar panels? Some houses back up to enormous lots, the one behind me is 17000 square feet. I don’t want second stories that would loom over my house as people drove up to it. This has been done on Montrose and looks awful. Higher grades and flood plains. These need to be taken into account when looking at the final height of buildings. Access areas for repairs. Don’t forget to keep these free. Granny units are another structure that needs to not block sunlight, end my privacy, and increase parking. I think they may become homes for Stanford students, not low income employees. Are you going to have rent restrictions on these so low income people can live in Palo Alto? Is this a can of worms? Who decides the guidelines? Please address these issues and consider that Palo Alto has increased density at the expense of quality of life. From: K JM Date Received: 11/20/2016 Question: so now, neighbor remodeling garage on churchill where plans are stamped not to be used for sleeping (or some similar designation...) - will they now be permitted to have a tenant? From: Virginia Van Kuran Date Received: 11/17/2016 I am in full support for updating the regulations regarding ADUs and JADUs to provide much needed additional housing options in Palo Alto. I would like to be informed about this project. Thank you. Regards, Virginia Van Kuran 879 Garland Drive Palo Alto, CA 94303 virginia@vankuran.com From: Tammy Kwan Date Received: 11/17/2016 My name is Tammy and I was referred to you by Samuel Gutierrez, one of the City Planning technicians. I own a duplex in Palo Alto and we had hopes to build expand one unit by adding a second floor to maximize our square footage. Our local family of four would love to be able to live in the expanded side while keeping the other unit as a rental. It is zoned as R2 and since it is on a lot sized less than 7500 sq feet, we are considered a grandfathered, legal, non-conforming duplex. Therefore, we are not able to add any additional square footage. Unfortunately, we learned this too late and already drew up our plans. According to Samuel, the only option we have if we want to increase the floor space is to convert it to a single family home. However, we'd like to keep it as 2 units to provide us that extra rental income. Also, it seems like a shame to take away a unit from the already short pool of housing in Palo Alto. I also hear from news outlets that there is a push to allow more second unit dwellings on more properties. Do you know the latest on this in Palo Alto? Is there a chance that the City may decrease the 7500 sq foot lot minimum for 2 units in an R-2 zone? Samuel mentioned that I can be added to a newsletter to receive the latest info? If so, that would be great. Thanks and looking forward to hearing your thoughts, Tammy From: Diane Reklis Date Received: 11/21/2016 Dear Cory and members of the PTC, Relaxing the setback from the street slightly would allow many Eichlers to either convert the front bedroom to a studio and/or add an apartment to half the garage. This would not impact the neighbors or the homeowner nearly as much as a second story addition or a separate structure and it should be considered while you are thinking about ADUs. The setbacks were put in place when we had water for front lawns; times have changed and we should examine what makes sense for today and the future. There used to be an ordnance or zoning that would not allow bedroom in ½ garage – not sure if it is state or local, but if it is still restricted it needs to be changed. With appropriate firewalls this restriction does not make sense. Now many folks put in an “office” in part of the garage and use it for a bedroom. I’d rather make it legal and safe than illegal and therefore have no possibility of regulating for safety. Many of the ideas I proposed in my editorial last April are relevant to this discussion. Please include copies of this editorial in your meeting packet. http://www.paloaltoonline.com/news/2016/04/30/guest-opinion-be-creative-in-embracing- change-preserving-neighborhood The city should make ADUs easy, including helping with getting simple designs through the permit process and helping (at cost) to develop appropriate leases (leases might include minor repairs or computer advice in lieu of some rent). There is no need to demand that each homeowner reinvent the basic design, particularly when many homes in the neighborhood are similar. A well-designed ADU might have many different uses during the time that a homeowner has control of their house and that flexibility is a good thing and should be encouraged. Many homes that are suitable for ADUs are owned by older folks who are more likely to do the work of adding an ADU and renting it out (or renting out the main part of the house and moving into the new part) if the city makes the process easy. This would also allow many to age in place while allowing new folks to share the space. I am glad that this idea is gaining traction. Thank you for letting me give input. Diane Reklis 650-814-3410 _______________________ 1.Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2.The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3.The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. Planning & Transportation Commission 1 Regular Meeting Agenda: November 30, 2016 2 Council Chambers 3 250 Hamilton Avenue 4 6:00 PM 5 6 Call to Order / Roll Call 6:10 pm 7 All Commissioners present 8 9 Chair Alcheck: Alright, good evening. I'd like to begin our Planning and Transportation 10 Commission (PTC) meeting. Can we have a roll call? 11 12 Yolanda Cervantes, Administrative Assistant: Chair Alcheck, Commissioner Fine, Commissioner 13 Gardias, Commissioner Rosenblum, Commissioner Tanaka, and Vice-Chair Waldfogel. All six 14 members present. 15 16 Oral Communications 17 The public may speak to any item not on the agenda. Three (3) minutes per speaker.1,218 19 Chair Alcheck: Are there any agenda changes, additions or deletions that we need to go over at 20 this time? 21 22 Jonathan Lait, Assistant Director: Nothing from staff. That's up to the Commission. 23 24 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. 1 The Commission took a break 2 3 5. The Planning and Transportation Commission will Consider a Recommendation to the 4 City Council for Adoption of an Ordinance to Update the City's Municipal Code 5 Sections Regarding Accessory Dwelling Units (Second Dwelling Units) for Compliance 6 with Recent State Laws and Other Changes to Encourage Construction of Accessory 7 Dwelling Units. The Proposed Ordinance is Exempt from the California 8 Environmental Quality Act (CEQA) per Sections 15301 and 15303. 9 10 Chair Alcheck: Testing. Ok, we are going to get started with Item Number 5 regarding Accessory 11 Dwelling Units (ADU). I'm going to ask staff to present the agendized item then we're going to 12 give individuals in the audience an opportunity to speak. If you haven't submitted a speaker 13 card and you want to speak on this item the speaker cards are right there you can fill them out 14 and hand them to staff. Ok. 15 16 Chitra Moitra, Planner: Good evening, Commissioners; I’m Chitra Moitra, Planner, Long Range 17 Planning. Tonight staff requests the Planning and Transportation Commission (PTC) to adopt a 18 Motion recommending that the City Council adopt a draft the draft ordinance which is 19 Attachment A of your staff report amending Title 18 of the Municipal Code to implement the 20 new state regulations on ADUs and Junior Accessory Dwelling Units (JADU). In November, in 21 the October of 2015 City Council in a colleague's memo requested the PTC to look into ways to 22 increase opportunities to create more ADUs and consider steps to bring existing non-compliant 23 ADUs into compliance. But they were asked to do so while minimizing the impacts on 24 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. community character and maintaining the sensitivity to neighborhood design standards. So far 1 PTC had two study sessions on this item, one in January of 2016 and the other in July of 2016. 2 PTC in the study sessions discussed the constraints which prevented construction of the ADUs. 3 Staff provided a lot of research the best practices followed by other cities. And PTC requested 4 staff to estimate the number of units that can be generated if changes were made to the 5 minimum lot size requirement and parking standards. 6 7 While staff was working on this some significant changes happened. Governor Brown adopted 8 three new legislations on ADUs in September of 2016. These are Assembly Bill (AB) 1069, sorry, 9 Senate Bill (SB) 1069, AB 2299. These two are effective from January 1, 2017, and AB 2406 on 10 JADU is not a mandated requirement, but if adopted is effective immediately because of this 11 urgency statute. Now Slide 4 here out of is the brief outline of the state regulations which we 12 have on ADUs right now. AB 1866 otherwise known as the State Second Unit Law was adopted 13 in 1982. While it was mainly encouraged to create secondary units while maintaining the local 14 flexibility for unique circumstances and conditions. This line includes details on locational 15 criteria for ADUs, parking requirement for ADUs, unit size requirement for ADUs, and the type 16 of views required for ADUs. 17 18 The next slide shows the SB 1069 and AB 2299 which were adopted in September. These two 19 bills further simplifies the requirements for ADUs and some of the highlights are like on parking 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. a local agency can choose to completely eliminate the parking requirement if necessary and 1 parking requirements there will be no parking requirements for ADUs which are located within 2 half a mile of public transit, which are located within historically significant district, ADUs which 3 are part of existing primary residence or ADUs which have which are located on street parking 4 permits required, but not offered to the occupant of the ADUs. And lastly where there is a car 5 share vehicle located within a block of the ADUs no parking should be required. 6 7 The next slide also shows additional requirements for the law, for these two regulations. First 8 one is on setback. It says that no setback would be required if an existing garage is converted 9 to an ADU or there can be setback of no more than five feet from the side and rear lot lines if 10 an ADU is constructed over a garage. This bill also discusses other standards like ADU is not 11 intended for separate sale. ADUs can be rented out with terms longer than 30 days. 12 13 The next slide which is AB 2406 Junior Second Dwelling Units defines the second dwelling, a 14 junior second dwelling unit as living space of no more than 500 square feet (sq ft) and 15 contained entirely within the existing single family structure. The next slide shows the number 16 the some of the characteristics of the junior secondary units, but the most important ones are 17 no additional parking is required for a junior accessory second dwelling unit or no minimum lot 18 size is required for it. 19 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. What staff is proposing tonight is to make the minimum amendments required to comply with 1 these newly adopted state laws, which means these, the changes which it means including 2 changing the terminology of second units or second dwelling units to ADUs throughout the 3 document, repealing Sections 18.10.070, 18.12.070, and 18.28.070 and adding an entirely new 4 Section 18.42.040 with development standards applicable to ADUs and JADUs for all the zones. 5 It also includes adjusting the parking requirements and following the state mandates excepting 6 allowing parking in the front setback. It also includes eliminating separation of the separation 7 requirement of 12 feet between the primary structure and the ADU. And last complete 8 complying with the setback requirements for garage conversions and second story above 9 garage ADUs. The proposed garage conversion to ADU would only be permitted if an existing 10 garage is not needed as required parking for the principal dwelling unit. 11 12 State law also permits the construction of above garage ADUs. The proposed ordinance 13 changes the setback requirement to be consistent with the state law. However, since state 14 laws only regulate state laws does not regulate ADU height limits the R-1 district is currently 15 prohibiting second story ADUs. This is only allowed in RE and OS zones. And no changes would 16 be made to any other development standards on ADUs. Staff also recommends that allowing 17 junior secondary units which involves convert conversion of existing building space to small 18 living units without a minimum lot size requirement or parking requirement. 19 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. This staff report also includes at the end a parcel analysis at PTC’s request if PTC chooses to 1 reduce the minimum lot size requirement from the required 35 percent. A clarification I want 2 to make at the end of the presentation is to the ordinance Section 1b and that with the 3 following text “Housing cost in Palo Alto are out of reach for many families with 33 percent 4 renters and 24 percent owners paying more than 30 percent of their gross income for housing.” 5 So with this the next steps for staff is to present the PTC recommendations and the draft ADU 6 ordinance to the City Council in February or January, as early as February or January, of next 7 year. This concludes staff presentation on ADUs. 8 9 Chair Alcheck: Ok, thank you. At this time I would like to invite the speakers up to speak. Every 10 speaker will be given three minutes to speak. We have approximately ten speakers so that is 30 11 minutes. When the buzzer goes off please end your comments as quickly as you possibly can. 12 Ok, thank you. 13 14 Jonathan Lait, Assistant Director: Chair just to reiterate I think it’s five minutes per speaker if 15 they choose to (interrupted) 16 17 Chair Alcheck: Oh is it? 18 19 Mr. Lait: Unless you're limiting it to according to your rules. 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. 1 Chair Alcheck: Yeah, sorry. So let me be more specific. I want to reduce the time today from 2 five to three minutes so that we can effectively get all of these speakers in within the hour. 3 4 Mr. Lait: It’s certainly within your discretion. Thank you. 5 6 Chair Alcheck: And then give them an opportunity to hear sort of our discussion. Ok, so will you 7 begin that process? 8 9 Vice-Chair Waldfogel: Great. Let's start with Dave Wills followed by Debbie Nielsen. 10 11 Dave Wills: Hi, my name's Dave Wills. I live on Waverly Street in Old Palo Alto and I live on the 12 wrong side of the tracks. And Waverly doesn't cross the tracks so if you don't know what that 13 means you have a gap in your knowledge of Palo Alto. I'm late to the game here so I apologize 14 about if might some of my comments may not make sense. And I don't have a whole lot of 15 structure to them so I'll just give them out as I’ve jotted some notes. 16 17 One note I made is maybe the housing problem is going to go away because many of the 18 residents are going to leave because of the airplane noise. Infrastructure includes a lot of 19 things not only affordable housing, but you have to consider traffic and other services which I'm 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. sure you've done. But these need to be considered and I don't see how you could do an ADU 1 Motion without really thinking about how it affects traffic, noise, shopping, services, and 2 whatever. 3 4 I live on a street where there I’m sure probably most of you do. There is a house on either side 5 of me and three houses directly across the street. So just in that six house area there are 6 currently seven families. And according to the way you're adding ADUs since it's unlimited it 7 could easily expand to 11 families. I won't have an ADU in my house. That's quite a big 8 addition to my neighborhood and I’m sure it would be to your neighborhood too. Also I believe 9 that ADUs may disproportionately be expand in Midtown and South Palo Alto as opposed to 10 Old Palo Alto and North Palo Alto where the houses are bigger the people earn more money. 11 And their ADUs are likely to be servant quarters. 12 13 I’m big, I'm very concerned about parking. In general, in generalization is that people no matter 14 what your income level is you have three things: you have a smartphone, you have a large flat 15 panel television (TV), and you have a car. So if there are no parking requirements you're just 16 going to make the parking in Palo Alto much more unbearable especially for other residents. 17 I’m concerned about ADU conversions on property line. My bedroom is six feet from the 18 property line. There's a garage on the property line. If you allow that garage to turn into an 19 ADU I now have a neighbor in my bedroom. I don't think that's fair. I'm very concerned about 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. short term rentals. I like knowing who my neighbors are. I like to see them and I’m concerned 1 that 30 days may not be long enough. Thank you. 2 3 Vice-Chair Waldfogel: Thank you very much. Debbie Nielsen followed by Julien Schaller. 4 5 Debbie Nielsen: Hi, I'm Debbie Nielsen. I live in Barron Park. We have been here since 1977. I 6 have two young boys and an 86 year old mother in law who is in need of our care and I would 7 love not to have her in my house. I think all this is great. I love the proposals, but the one thing 8 that I'm hung up on is the Floor Area Ratio (FAR). If you guys or we could increase it by just five 9 percent that can give somebody the 200/300 extra sq ft they need to build an ADU. When I 10 built my house in 1990 I didn't max out my a lot, but because of the two story limitation I only 11 have 35 percent of my lot. I can only build 150 square foot ADU. So if they’ve changed the FAR 12 just five percent I think a lot of people who have bought here and have built we have the option 13 to add an ADU to our property. Basically I think we need to change the FAR. Thank you. 14 15 Vice-Chair Waldfogel: Whoops. 16 17 Julien Schaller: Greetings, Commission; Julien Schaller, The Tiny House Network. Thank you for 18 your time and for addressing this topic today. I think since our last meeting in July there's been 19 a couple things, developments in the Bay Area relative to ADUs and micro housing, tiny house, 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. tiny homes. First of all, in October of 2016 on the 28th Kansas City the ICC has adopted a 1 version of ADUs, tiny homes, and micro housing. I would strongly suggest that if you would like 2 to go into the weeds of zoning and planning to review some of the codes that were expressed 3 in that committee by the American Tiny House Association. Also more closer to home in San 4 Jose Mayor Licardo has passed an emergency measure for tiny micro housing to benefit 5 students, homeless, homeless veterans. So that might be a project to look into as well. 6 7 Beyond that I think that some of these structures and the language in the ADUs, Secondary 8 Dwelling Units (SDU), JADUs could benefit the community. I think that there's a lot of 9 multigenerational families here that are looking to expand, families looking to stay closer 10 together. We have a family, personal family business and corporate relocation so we have a 11 pretty good idea of the influx and out flux of labor coming in and out of the Bay Area. It's very 12 disproportionate and I think that in this crisis of housing ADUs, SDUs and maybe even opening 13 up the definition to tiny homes would be the logical, sensible approach allowing the private 14 sector, consumers, and citizens to address these needs. Other than that I applaud the work 15 that you've done in the fee structures and bring a Motion to review a tiered pricing. Thank you 16 very much for your time. 17 18 Vice-Chair Waldfogel: Thank you. Bonnie Packer followed by Hamilton Hitchings. 19 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. Bonnie Packer: Am I on? Oh yeah. Good evening Commissioner Alcheck [note-Chair] and 1 Commissioners, My name is Bonnie Packer. I'm President of the League of Women Voters of 2 Palo Alto. So I am speaking for the League tonight. The League of Women Voters supports 3 increasing the density of single family residential areas in various ways to improve the diversity 4 of housing opportunities for all economic levels. ADUs is one way to do this. For this reason at 5 this time the League supports the changes proposed by staff to the existing ordinance to meet 6 new state requirements permitting ADUs and defining the JADUs. The League supports the 7 inclusion of these JADUs in this ordinance. In particular having an ADU within the envelope of 8 the existing unit will not change the mass of the main single family home and allows no more 9 residents than are currently permitted in the home today. A separate entrance allows for 10 privacy for the principal unit. And the reduction in parking requirements and the placement of 11 the space is more realistic than in the current requirements. 12 13 The regulations in the ordinance however continue to be limiting and we hope that the 14 Commission will continue to look at other options that will encourage the building of more of 15 these small units. The League requests that the Commission recommend passage of the 16 proposed ordinance, but continue to study additional options that will encourage the inclusion 17 of more ADUs in our single family residential areas. Thank you. 18 19 Vice-Chair Waldfogel: Thank you. Hamilton Hitchings followed by Doria Summa. 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. 1 Hamilton Hitchings: Hi, I’m Hamilton Hitchings. I’m a member of the Citizen Advisory 2 Committee (CAC) for the Comp Plan and also on the Land Use Subcommittee. So we have 3 spent some time talking about this; however, these comments are my own and not those of the 4 committee. 5 6 I support ADUs and JADUs. They are way to provide young people and senior family members 7 affordable housing options. And there's a good case to be made for using ADUs to increase 8 housing for local workers and elderly although many local residents do not welcome erosion of 9 R-1 zoning. I strongly support the staff's additional ADU requirements/recommendations and 10 hope you adopt all of them; specifically these four: only one ADU can be considered 11 constructed on a lot, that ADU may not be sold separately, that house or ADU must be owner… 12 the house or the ADU must be owner occupied, and the ADUs not be rented for less than 30 13 days. Although I'd actually recommend increasing it to at least 60 days because the idea of the 14 ADUs is to increase housing supply and if it's a short term rentals it doesn't really do that. 15 16 Up zoning our single family residential neighborhoods to R-2 is a big deal and should not be 17 taken lightly. I do however think that relaxing ADU minimum lot size requirement from 35 18 percent to 20 percent would significantly increase the percentage of qualifying parcels, but I do 19 not support increasing the total FAR of the lot. If you're allowed to get more FAR by claiming 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. the structure would be used for an ADU it's likely there’d be a lot of abuse of this and many of 1 those new units may not actually be used for ADUs. In terms of parking I support only one off 2 street parking spot unless the house is located in a parking permit area. I don't see how living 3 near public transportation or car share results in the majority of those renters not owning cars. 4 5 And I don't profess to understand all the details of the state bills and what you have to do to 6 comply with those. However, the biggest source of long term rental stock erosion is the 7 conversion to Airbnb type rentals. This increases scarcity, drives up long term rental prices, and 8 deprives the City of tax revenue. We need to crack down on the Airbnbs in R-1 neighborhoods. 9 So let's use this opportunity to thoughtfully support updating our ADU requirements to comply 10 with the new California state laws while being sensitive to our R-1 neighborhood character and 11 in particular in the ways I've outlined above. Thank you. 12 13 Vice-Chair Waldfogel: Thank you. Doria Summa followed by Linnea Widstrom. 14 15 Doria Summa: So good evening, Chair and Commissioners. And I understand that we have to 16 comply with state law, but I encourage you to use your discretion to minimize negative impacts 17 as much as possible. I think JADUs make a lot of sense. People are doing it already and it just 18 improves the conditions for renters, but I am concerned about reduction of parking 19 requirements. ADUs however that violate setbacks reduce neighbors privacy, they reduce 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. backyard habitat, and they have the potential to negatively affect our urban forest if trees are 1 cut down. There's an assumption that residents of these units will not need cars which I don't 2 agree with. 3 4 Parking in many neighborhoods is already a problem and the rejection of onsite parking spaces 5 should be carefully considered so as not to exacerbate existing parking problems. Santa Clara 6 Valley Transportation Authority (VTA) is reducing our bus service and even with the existing 7 service the routes do not have the flexibility and the frequency to realistically provide a reliable 8 commute experience for most people. Caltrain is at capacity during commute hours and cities 9 up and down the peninsula claim that proximity to Caltrans to under park their buildings and 10 meet Transportation Demand Management (TDM) goals etcetera. It's impossible to imagine 11 with all these people making these claims that Caltrans could ever have the capacity to support 12 them. 13 14 I'm concerned that it will be overwhelming and not possible to enforce the 30 day minimum 15 rental and that these units will become hotel like uses removing the ability of renters who are 16 part of the community from living in them and generally degrading a sense of community and 17 our neighborhoods. Finally, I am concerned I know that this is a ministerial process now, but I 18 think if we're going to have a lot more of them there will be a way to improve transparency and 19 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. there should be a way to improve transparency and also to have an appeal process. Some say 1 that fences make good neighbors and I say setbacks do also. Thanks. 2 3 Vice-Chair Waldfogel: Thank you. Linnea Widstrom followed by Peter Maresca. 4 5 Linnea Widstrom: Hello, good evening. My name is Linnea Widstrom. I live on Monroe Drive in 6 Palo Alto. My letter is in the packet. There are lot of details in there so I'm not going to read 7 that to you. I'm a 20 year resident of Palo Alto with a disabled young adult son and I want to 8 build an ADU for multiple potential uses, for an aging mother, for myself when I can no longer 9 do stairs in my house, for my son or for a caretaker for both of us or three of us. 10 11 I've been heartened by the City Council's new look at ADUs as one method of increasing 12 affordable housing and accommodating the needs of all sorts of residents. However, I was 13 disheartened by the proposed amendment. I think we need a good deal more flexibility if the 14 amendment is to accomplish the City's stated intent. I'm particularly disheartened by the 15 staff’s minimum required to meet state law. For example, I have a 10,000 square foot lot a 16 hundred yards off El Camino, 6/10ths of a mile from San Antonio and all of the services there, 17 with a two story 2,000 square foot house. My property would not qualify for an ADU under this 18 proposed amendment because of transit. We still have suburban level, read sparse, transit 19 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. requiring two lines at 15 minute intervals within half a mile eliminates even properties like mine 1 less than a mile from four bus lines and even Caltrain and 200 yards from the VTA 22. 2 3 Lot size was a real surprise to me. I haven't been paying attention over the years. Requiring 4 that any lot that is the standard size for its zone be any percentage larger than standard is 5 exclusionary. Please require only standard lot size and/or provide a FAR option to qualify. I 6 could put up a 5,000 square foot house. Why not a FAR option for a 2,000 square foot house 7 and a 900 square foot maximum ADU? 8 9 I wonder how many properties in the City could actually qualify for transit and lot size. I hope 10 you'll review the restrictive aspects of this proposed amendment and ask staff to take another 11 crack at this before approving something as the minimum required to meet state law, but 12 which I do not I hope does not match the City's true intent. Thank you. 13 14 Vice-Chair Waldfogel: Thank you; Peter Maresca and then Shani Kleinhaus. 15 16 Peter Maresca: Hello again, whoops, my fault. Yes, I’m also a resident at 450 Monroe Drive and 17 I consider myself a pretty smart guy, but I’ve got to tell you I’ve been flummoxed by all of these 18 percentages and numbers and zones, etcetera. And fortunately my wife's the wonk in the 19 family so she can handle all of that, but I have very personal feelings about why we would like 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. to have an ADU. And I'm sure I'm not the only citizen in Palo Alto with a mother or a father or 1 son or daughter, brother or sister with a disability or someone who's aged and needs some 2 assistance. Someone who needs the assistance, but at the same time needs an independence 3 for a certain quality of life. So a quality of life and having your basic needs met the solution to 4 me seems that can be easily found with ADUs. And ADUs that should be made accessible in 5 many more circumstances than they are. 6 7 Now I fully understand the concerns some founded and some unfounded that what about the 8 future use? What happens in 10 to 20 years when it's not a nice small family with their disabled 9 or aged person? Well, I think that the possibility that in 10 to 30 years, 10, 20, or even thirty 10 years there might be an extra car out on the street I think most of citizens in Palo Alto are 11 willing to take that risk to know that people now today living in our community could have a 12 better quality of life. And we might not even need cars another 10 or 20 years. Even in Palo 13 Alto we’ll probably all be time sharing a thousand Tesla's and that will be it so years from now 14 this property with an ADU that we have might not even be a concern of rentals or extra cars. 15 There may be, it may be a very desirable piece of property for someone with an aged parent or 16 someone with a disabled child. So we don't have to always assume that it's going to be 17 someone coming in so they can rent out the properties in an Airbnb unit. 18 19 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. Now all over the peninsula housing for the elderly and disabled units have been denied to the 1 needy. Yes, even in liberal compassionate Palo Alto the response has been Not in My Backyard 2 (NIMBY). Well, I think I'm not alone in responding YIMBY. Literally, Yes in My Backyard. The 3 best solution is to have a unit that can provide for members of our family in need. It’s the best 4 solution for individuals and the community at large. Let’s… you know this problem is solvable 5 and there is some sort of compromise an equitable solution that we can come up with so you 6 guys are pretty smart and I think you can figure it out. Thank you. 7 8 Shani Kleinhaus: Thank you, Shani Kleinhaus, I’m a resident of Palo Alto. I’m on the CAC; do not 9 speak for the CAC. I am on the Executive Committee of the Loma Prieta Chapter of the Sierra 10 Club and I am the [unintelligible] advocate for Audubon in this area. And I speak other than not 11 for the CAC the other I am speaking for. So Palo Alto neighborhood character is defined by our 12 urban forest. And the Urban Forest Master Plan looks to integrate habitat into the City and the 13 lattice that builds habitat and the urban forest in Palo Alto is our Oaks. So with this preamble I 14 would like to say that we are glad that the State has streamlined JADUs. These units increase 15 housing stock and have very little impact to the environment and those are things that I wish 16 Palo Alto had done years ago, streamline that process. 17 18 In terms of the attached and detached housing units we support staff recommendations and 19 are concerned about those units that have the potential to remove trees, especially oak trees 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. or remove canopy. And so I think what we would like to ask is for transparency in general. So 1 people will know if somebody is going to remove the tree next door. And also potentially look 2 at the tree ordinance to see if there is a way that one can appeal if somebody wants to remove 3 an old oak next door for the purpose of building something there. There should be enough 4 room to build without harming the urban forest too much and so I think that's one thing that is 5 really important is to figure out how to protect the urban forest and our ecological lattice as we 6 grow and provide more housing. Thank you. 7 8 Vice-Chair Waldfogel: Thank you. John Kelley and then Becky Sanderson or Sanders, I’m sorry. 9 10 John Kelley: Thank you, Chair, Vice-Chair, Commissioners. I've been speaking about ADUs in 11 this chamber probably four or five times now over the last year and if you've been in any of the 12 Council meetings I think there's an overwhelming consensus in our community that we need 13 more housing. And I've repeatedly tried to advocate for ADUs because I think that's the 14 cheapest, fastest, most effective way that we can get more housing and more affordable 15 housing in Palo Alto. So I want to commend you for having this on your agenda tonight and I 16 want to commend the staff report in general for particularly the advocacy and the support for 17 JADUs. But like many of the other speakers tonight I think that we have not gone far enough. 18 In fact we haven't even gotten close to where we should be going to really address the housing 19 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. needs of our community. Since we've only got three minutes and not five I'm going to try to be 1 very specific about what I think has to be changed. 2 3 First, you need an overall plan for creating more ADUs. This plan if it were adopted I think it 4 might lead to an additional 200 or 500 units when there's an opportunity probably over ten 5 years to put in 5,000 units of ADU. So I think you have to think order of magnitude greater 6 number of ADUs. Secondly, to reach that greater number you're going to need to change the 7 lot size requirement as it exists. I would advocate taking the incremental lot size requirement 8 to zero. Certainly not to 35 percent and I think the speaker before was suggesting 20 percent 9 would find that that's not going to come close to meeting the needs of the community. 10 11 Secondly, if you look at this map which I really want to commend the staff for putting together 12 you will see two things. First of all there's a total lack of except for part of Barron Park there's a 13 total lack of congruity between the transit proposal or the transit regulations that staff has 14 advocated and where the ADUs stock, where the potentially ADU stock exists. There's just a 15 complete mismatch. So I would also say that either and related to that I don't know where staff 16 got this definition of transit. As I understand the State statute it simply says transit. It doesn't 17 talk about two bus lines simultaneously for every 15 minutes. So that should go. 18 19 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. Since I've got less than a minute left I just want to talk about a couple other points. We have a 1 natural experiment going right now for years we've avoided doing a census of existing ADUs. I 2 think there are many of them in South Palo Alto. They should, we should understand where the 3 existing ADUs are. We should get rid of the lot size multiple altogether. There should be no 4 parking requirement at all. If an ADU is under fifteen, under 500 feet whether it's attached or 5 detached and the maximum should be one uncovered lot which should allow for that being in 6 the front setback. We should also have safe [harbor] standards and expedited plans that I think 7 should be made available to anyone in the community who wants to convert a garage. That's 8 going to be the simplest fastest way to increase the housing stock in Palo Alto. And finally as 9 you see what's happening with housing in Palo Alto we're getting more bigger houses with big 10 basements. If you're in a, if you're on a lot that does not have a basement and you're going to 11 forswear adding a basement while you're building an ADU you should get an FAR boost. I 12 would suggest that that should be five percent. Thank you. 13 14 Vice-Chair Waldfogel: Thank you. Becky Sanders. That’s our last one. Are there any other 15 cards that haven’t been brought forward? No. 16 17 Becky Sanders: I'm looking for that green button. Ok. Thank you. My name is Becky Sanders. 18 I'm the Moderator of the Ventura Neighborhood Association though I'm not here speaking for 19 them. I live in Ventura. And I this map I take issue with the assumption that bus and shuttle 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. routes are actually commuter serving options. So yeah I live three miles from where I work 1 which is great. For me to take the bus there would be an hour and a half. And so there are 2 going to be cars all over these neighborhoods. So I would recommend I just think the one half 3 mile circle from a train stop seems reasonable to me even though I also agree with some of the 4 issues that Miss Suma brought up about that the commuter trains are already kind of maxed 5 out at peak commuter times. But I'm very concerned about the parking in Ventura. We're 6 already heavily parked and when you start like I don't of course we have tiny lots in Ventura so 7 I'm not sure how many ADUs will be built, but I just want to make sure that people have a 8 realistic understanding that Palo Alto North County is well served by buses. I mean Arthur 9 Keller the day after he wasn't seated, granted a seat, he was emailing about the 88 and the 35. 10 I have to give it to Arthur. So anyway that’s just a real concern for me and thank you very 11 much. 12 13 Chair Alcheck: Ok, thank you to those of you that participated in that comment section. Alright 14 before we start things off I want to give a little context to tonight's meeting. This is the third 15 time this year that we will be discussing ADUs; however, this is the first time that we're 16 reviewing a draft ordinance. I want to provide a sort of a little clarity here. Our past two 17 meetings were study sessions where the discussion really revolved around the idea of should 18 we be encouraging development of ADUs and if so what are the ways that we could 19 theoretically encourage their development. The legislation that has recently passed has 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. changed the timetable with which we would like to operate in which is why staff prepared the 1 draft that they did which brings us into compliance arguably as quickly and as efficiently as 2 possible. So comments from community members about whether this effectively goes far 3 enough are appreciated, but just so that you understand the effort that staff put to today was 4 an effort to bring us into compliance with state law. 5 6 Today we will have an opportunity to discuss changes to that ordinance that we think are 7 relevant. I want to suggest that our goal for this meeting should be to move forward this draft 8 ordinance to City Council so that we can continue this process of falling into compliance with 9 state law. I think that based off the last two meetings that we had where we had study sessions 10 and I'll leave it to you guys to sort of decide how you want to go about this, but there's sort of 11 two comment categories. I think they're going to comments tonight about promotion and 12 there's going to be comments about the specific ordinance and how we can amend it. And I 13 think if there is interest in exploring some of these concepts of promotion we should be mindful 14 that that shouldn't prevent us from potentially moving forward a draft ordinance tonight that 15 Council can review so that we can be in compliance with state law. 16 17 So with that I'd like to kick our discussion off and what we'll do is we'll take notes just like in our 18 last agendized item of any specific language changes if there are and we can review them at the 19 tail end of this discussion. Ok, Commission… We're going to Commissioner Rosenblum you’re 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. the first light and why don't we actually for the purposes of this item move all the way down so 1 that we can just efficiently have a discussion? So Commissioner Rosenblum lead us off and 2 then Fine. 3 4 Commissioner Rosenblum: Ok. Thank you, so excited to start getting some specific language 5 down; just a quick preamble. I do think ADUs are a great idea, but I think it needs be part of 6 this holistic set of solutions for providing more housing and I don't even think in the end it’s 7 going to be one of the largest source of housing. Even in cities where ADUs are a big success in 8 the United States (US) like Portland it only accounts for something like 700 plus units, about 9 one percent of their housing stock. However, there are examples of places where they go well 10 beyond just making ADUs more attractive, they actually encourage ADUs like Vancouver where 11 it has been able to get up to 35 percent of housing stock. So the naysayers I think that there's 12 going to be some experimentation. There are some examples of cities where it's become a 13 significant portion of total housing. Or I'm sorry, in Vancouver 35 percent of homes that have… 14 35 percent of single family homes have added an ADU. 15 16 The thing I like about ADUs is that it does spread a minor amount of density throughout the city 17 as opposed to just concentrating it. In general you want density around transit, but in this case 18 because of the nature of ADUs you're spreading it very thin and so it adds meaningful relatively 19 cheap housing units for the kinds of uses that several of the petitioners came forward 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. particularly around the care of aged, disabled, etcetera family members that want to live with 1 them, but in addition for very young and very old. 2 3 So a couple specifics, the things that I would favor just off the bat based on the staff report and 4 based on some of the speakers and based on research. No minimum lot size for standard R-1 5 lots. Meaning I would not approve for substandard, but also not 35 percent above, not 20 6 percent above, not 5 percent above. I think that if you have the lot so long as you don't violate 7 the current FAR regulations that you should be allowed. I do not support petitioners requests 8 for additional FAR. I do think that that adds potential room for abuse. 9 10 Around parking requirements I think this is sort of bifurcated there is this around transit we are 11 proposing reducing parking requirements in accordance with state law. I agree that the Palo 12 Alto definition of transit being two lines of certain frequency seems overly arduous. I also think 13 that the circle that we've drawn around major transit hubs seems overly narrow. My home is 14 0.6 miles from Caltrain. When I had to commute I took Caltrain every day. It was not difficult. 15 It was about a three minute bicycle ride I think or something like a eight minute walk or 16 something like that. It certainly was not arduous. Others that live further from me were going 17 on skateboards or scooters. It's certainly a viable option. 18 19 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. On the other hand as was pointed out there's a mismatch between that and eligible plots and 1 so I’d suggest something additional which is there a lot of areas in Palo Alto where parking is 2 not an issue. I used to live in South Palo Alto on Ortega Court and off street/on street it wasn’t 3 an issue with our neighborhood. I now live in Downtown North where it is an issue and 4 neighbors clearly were very passionate about support for Residential Preferential Parking (RPP), 5 etcetera. But there are a lot of places where it's not and so I propose something additional 6 which is a City sponsored study of parking capacity. And I'm going make an arbitrary figure, but 7 in places where there is less than 50 percent capacity utilization in those neighborhoods there 8 should they should also be excluded from additional parking requirements. 9 10 I am sympathetic to the 30 day rental restriction. I don't want the ADUs just turn into 11 additional Airbnb rental units. I will have an additional question later how we enforce that, 12 how we know if that is the case. I don't recommend going any higher to say 60 days. I think a 13 30 day restriction is good. 14 15 And then the final bit where I'm just going to end with this and then maybe my fellow 16 Commissioners have additional ideas. I would like to go beyond just relaxing certain 17 restrictions, but go towards making incentives. Again if we acknowledge that we have a 18 housing crisis in Palo Alto and the region and this is a good way that other cities have used. 19 There are things like what Santa Cruz has done in waiving application fees or having pre-20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. approved by right designs so that if you have a ADU that came from an approved set of 1 guidelines that it will be approved by right. A speaker talked about zoning regulations that 2 enable tiny homes. I hadn’t thought of it. I don't know if there are any particular zoning 3 regulations that are needed around adding a tiny home on property. So it's something that 4 wasn't included in our study pack. I don't know if this is actually becoming a significant thing, 5 but it's certainly worth at least from my perspective understanding if there are any zoning 6 requirements. So that's my full laundry list. 7 8 Commissioner Fine: Thank you and thank you staff for the report. It was very helpful and glad 9 to get this item for the third time. Two quick questions and a number of comments; if we were 10 to pass this as is today and [so were] to Council what are the protections around trees? If 11 somebody is building and ADU [and their] protected oak are things that goes through all the 12 normal processes, is that correct? 13 14 Mr. Lait: Yes, we do have a set of standards that one defines what are protected tree is and a 15 process by which removing a protected tree would be reviewed by the City's Urban Forestry 16 Department. 17 18 Commissioner Fine: Ok, great. Thank you. Second question is about setback, side setbacks in 19 the current ordinance it keeps them at 20 feet from the side setback. I'm wondering what's the 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. purpose there? To me it seems like this is some kind of like urban design or architectural 1 purpose in terms of making the ADUs more internal to the lot than the house itself. I'm 2 wondering what's the purpose of that and if there's any downside to having ADUs? Respect 3 just [unintelligible] questions. 4 5 Chair Alcheck: No, I just wanted to clarify which… what specific requirement again? 6 7 Commissioner Fine: The side setback. 8 9 Mr. Lait: Can you point to us in the ordinance (interrupted) 10 11 Commissioner Fine: It was 20 feet. 12 13 Mr. Lait: I’m sorry? 14 15 Commissioner Fine: So I’m looking on Page 121. Excess restructures 20 feet from the side, 16 street side property lines. Sorry, so not just side setback, street side of property line. 17 18 Woman: Oh this is? Oh, ok. So you're referring to basically for detached accessory structures. 19 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. Commissioner Fine: Yes. 1 2 Woman: If a unit was at the backyard. So basically that those are that's based on existing 3 zoning code requirements for any structure that would be allowed in the backyard. So I guess 4 the presumption for that is making sure that there is enough separation on the street side so 5 for example, if somebody had a driveway on that side. So there's enough room for somebody 6 to pull in and park safely in front of their garage. 7 8 Commissioner Fine: Ok. I would float to my fellow Commissioners that may be something to 9 explore. This may knock out a good number of ADUs if we require that same 20 foot street side 10 property line setback. Those are my two questions; just a few other comments. I concur a fair 11 bit with Commissioner Rosenblum on the importance of ADUs, what they can do to serve our 12 community and different folks who are residents here in Palo Alto. I think the minimum lot size 13 is a huge issue here. And if you look at the data in here the largest number, the largest group of 14 properties are within that five percent range which means most of our lots were cut to the 15 zoning size, but they're still ineligible for ADUs. So if we do want to make ADUs eligible for a 16 number of properties that something we should explore. 17 18 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. The parking requirements, I would encourage us to make them more responsive to programs 1 like RPP. As they are there's no mention of RPPs in this ordinance. If not that perhaps we 2 eliminate the parking requirement or relax it even further to encourage ADUs. 3 4 I also agree that ADU should be regulated by FAR. I am somewhat moved by the one speaker 5 who had a mention of another 50 sq ft would allow her to build an ADU in her backyard, but I 6 think that does get us into a different set of territories for this ordinance that we're looking at. 7 And then just a question; what was 30 feet for the Airbnb regulation, was such as pulled out of 8 the air or what's the reason for 30 days? 9 10 Mr. Lait: Yeah, it's a standard that we have for our multifamily zones. 11 12 Commissioner Fine: Ok. Alright, that's all for now. 13 14 Chair Alcheck: Ok, I’ll go through my comments. I strongly agree with Commissioner 15 Rosenblum’s assessment of the eliminating the bonus requirement. Excuse me, eliminating the 16 size bonus requirement so that standard lots within their designated zoning should be eligible. 17 18 I'll touch upon the rental terms. I agree that this the Airbnb component or short term rentals is 19 a problem. I don't know, I have a different view about whether 60 days is appropriate. I'll tell 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. you in the City of Mountain View for rental housing right now they require annual leases. You 1 have to provide any renter an annual lease option. The renter has the option of electing to go 2 month to month, but the month to month option… the annual option can't be more expensive 3 than the month to month option. It's a little nuanced and it's a newer sort of legislative policy 4 in place in Mountain View. The reason why I mention this is that in most cases when you sign a 5 lease you sign a twelve month lease and then it moves to a 30 day term after the fact. I think 6 that what they've done in Mountain View is a little complicated because it requires that you 7 essentially have a conversation with your tenant every year and they have to make an election. 8 Which for an individual who is not in the rental business that could be a little difficult, but I 9 would suggest that beginning with an annual lease term is something that I think is reasonable. 10 So I would support this notion of requiring greater than 30 day terms and more specifically an 11 annual term that could then turn into a month to month term so as to not be overly 12 complicated. And the reason why is because again I think we need to create long term housing 13 supply as opposed to create a situation where someone could have a 30 day rental. 14 15 I also want to suggest that that element in and of itself that sort of continuity can alleviate 16 concerns in a neighborhood where there's just constant turnover. And 30 days is not constant, 17 but it can that could be a lot. It could feel dramatic if every 30 days or every 60 days there's a 18 new individual in your community. So I'll stop there and see what other Commissioners feel 19 about that. 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. 1 I will say this that in our discussions in other meetings and in our preparation for this there is a 2 general sense that the changes that we are discussing today will not lead to a significant 3 development of ADUs. And I just want to share that with the community because I think that's 4 important. We're talking about how we are hearing about a dramatic need. We're hearing 5 from passionate community members about how this could help them, but there is a general 6 sort of response that the individuals involved in this process and planning are not convinced 7 that we're going to see in 2017 assuming that we move this forward a development that's in 8 excess of even 15 ADUs. And I think it's important to know that. I don't believe that you're 9 going to find cul-de-sacs that have seven lots now turn into 11 families overnight. 10 11 I’ll… let me continue. I think that the discussion of bonus FAR is a discussion that should take 12 place at some time, but not tonight. I think we need to explore the notion of eligibility. I 13 would, I don't know if there's a way that we can incorporate a process by which individuals who 14 are interested in ADUs could somehow communicate their interest and identify whether 15 they're ineligible for some reason and then we could say well look, there are so many 16 individuals that have reached out to us that are ineligible and here's why they’re ineligible. And 17 these are the little changes that you can make that could create eligibility for those individuals. 18 I don't know that 5 percent one of our speakers asked for a 5 percent bonus FAR. I don't know 19 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. that that I would be curious as a Commission to exploring that further, but I don't know that 1 tonight is the night to make any suggestion like that. 2 3 Ok, the other comment I want to make is there is a… I'm also in favor tonight of exploring or I 4 should say supporting the JADU. There is a requirement in the JADU that the owner of the 5 property can't live in it. Well, hold on. Let me pull it up. Maybe I’m misreading, but it says 6 here an ADU can... hold on. Hold on. Yeah. Ok, maybe I read that wrong. I was going to 7 suggest that that, the JADU could be occupied by the owner of the parcel because that could in 8 sense be an empowerment opportunity. Ok, so I won't have to say that. 9 10 I want to respond to a few of the comments that were made tonight. One of the other things 11 that as Commissioners and in the planning process we've been thinking a lot about is sort of the 12 evolution of the relationship to vehicles. I want to suggest that we are not informed about… we 13 are at the beginning of potentially a dramatic change and we have had conversations in the 14 past where we have suggested that we want to be ready for changes, but it's very difficult at 15 this period of time to understand how the relationship with respect to vehicles is going to 16 change. So it's tough for us to really evaluate parking requirements based on some future 17 relationship to vehicles. That said I would like to echo Commissioner Rosenblum’s request that 18 some parking utilization study occur that identifies neighborhoods that really don't have a 19 dramatic problem. And in those neighborhoods this, the relaxation of the parking standard 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. could happen immediately. And in neighborhoods where… because again what we don't want 1 is we don't want to create a situation where individuals are oppose the development of ADUs 2 on a citywide basis because in their particular neighborhood parking might become particularly 3 tenacious. So understanding that I think would go a long way and I don't obviously that is not 4 going to happen before this goes toward City Council, but maybe if the second part of this 5 discussion involves a meeting where we get to discuss opportunities to continue to promote 6 the development of ADUs under that that particular information would be really useful. 7 8 Ok, I'm going to go into a little nuanced here section which is that and this came up during one 9 of our discussions in the past which is this idea that we have garages and someone mentioned 10 today we have garages that are on lot of lines. And if your bedroom is six feet from your side 11 setback and your neighbor's garage is on the lot line and that garage becomes and ADU then 12 you are six feet from a neighbor and that's not particularly appealing. I 100 percent appreciate 13 that sentiment. This notion of a garage, the whole notion of a garage being on a lot line, 14 literally on the fence, is one I find particularly bewildering. This is a part of our current 15 development standards that theoretically could change. And I believe one of the reasons why 16 that particular standard exists is it's sort of an opportunity for an individual who's forced to 17 have a rear contextual garage placement to be able to have better access to their rear yard by 18 not having their garage in the middle of their yard. That said it's problematic. It's problematic 19 to know that the ADU that could be developed could be literally right on your fence. I don't 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. know how we address that. I don't know if Commissioners have ideas of that. I don't know 1 that we would say look let's not develop ADUs because they could potentially be on your lot 2 line. I think we need to sort of address this idea of why are we requiring, why are we allowing 3 structures to be built on lot lines. And if the reason why we're doing it is because we're forcing 4 garages to be in the rear maybe then we should ask ourselves well why are we forcing garages 5 to be in the rear? 6 7 That's a bigger discussion. I want to just suggest that I appreciate, I am sensitive to that 8 individual's concern. I think lots of people in the community are concerned about that, that 9 notion of privacy. Ok. I think I’m going to stop there. Commissioner Waldfogel [note-Vice-10 Chair] will you continue? 11 12 Vice-Chair Waldfogel: Thank you. Let’s see, I generally support the staff recommendation to 13 comply with state law. I think that it's urgent that we move on that tonight and reach some 14 consensus about that. I think there are other things we can take up later. 15 16 I also I'm compelled by the argument that there are family urgency situations and I'd like to 17 think of ways to address those about taking care of family members. The question is if there's a 18 way to do that for the duration of that need and not potentially create the 20 year 19 downstream, downstream issue of what do we do with this unit if the family situation no longer 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. exists or if the house is sold. I'm not quite sure how to address that, but there are there may be 1 some clever ways to do that. 2 3 I want to push back a little bit on Commissioner Rosenblum and Commissioner Alcheck’s [note-4 Chair] relaxing parking in districts that don't have that are lightly parked or parked less than 50 5 percent that don't have a parking problem per se. I think if you go out and poll the community 6 there are some people who believe that a lightly parked street is an opportunity, there are 7 other people who believe that a lightly parked street is an amenity. And I don't think we know 8 today which of those two things governs so I think we need to do some work on generally in the 9 parking issue to figure out whether it's an amenity or an opportunity. 10 11 Couple… I agree with Commissioner Alcheck [note-Chair] on the privacy lot line issues. I think I 12 saw some draft text to improve privacy, so privacy at lot lines in terms of placement of windows 13 and mechanical equipment. So maybe we can look at that. 14 15 I also agree with the comments about tree protection. We heard that from members of the 16 public, also heard that from Commissioner Fine. So I think that the language that addresses 17 that is pretty important. 18 19 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. Two technical clarifications, I’d just like staff clarification. The tandem parking requirements for 1 ADUs, can we just clarify whether those tandems can stack with parking for the principal 2 residence or whether those tandems need to be stacked separately. 3 4 Woman: Thank you. So the way the draft ordinance is written you could have the accessory 5 unit parking behind the primary units’ space. 6 7 Vice-Chair Waldfogel: Could we clarify, could we I guess I'd like to see other people's view on 8 that, but that seems like a unlikely to be used configuration if the ADU can stack with the 9 principal residence. So I'll just I want to put that comment out there. I'd like clarification that 10 we wouldn’t that I would prefer that we not do that. The other clarification is on daylight 11 planes. So I'm just going to clarify that daylight plane still govern ADUs and setbacks. 12 13 Woman: Yes. So if the ADU was part of the primary the primary residence then the primary 14 residence daylight plane requirements are the same. There is a separate daylight plane 15 equipment requirement for a detached or rather not detached, but for any in the rear yard. 16 17 Vice-Chair Waldfogel: So what would that, what does that look like? If there's, if so if there's an 18 existing garage in a rear yard setback then that's governed by a separate daylight plane? 19 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. Woman: Correct. 1 2 Vice-Chair Waldfogel: And a new ADU (interrupted) 3 4 Woman: It would be the same requirement. So if the new, if the garage is converted to a new 5 ADU the same daylight plane requirement would apply. 6 7 Vice-Chair Waldfogel: What about a de novo construction of a detached ADU? 8 9 Woman: If it's a new construction of a detached ADU… I mean basically the way the code is 10 written is that a ADU would be allowed in the rear yard only if it's a converted from an existing 11 garage. 12 13 Vice-Chair Waldfogel: Ok, that wasn't clear to me, but thank you. Is that true? 14 15 Chair Alcheck: [unintelligible-off microphone]. 16 17 Vice-Chair Waldfogel: Well, like you build a garage and then you build a… then you convert it. 18 19 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. Woman: Correct. I'm sorry just to clarify that that you can have a detached accessory, 1 detached ADU within the buildable area, but it can also be in within the rear setback only if it's 2 converted from an existing garage; just wanted to provide that clarification. 3 4 Cara Silver, Senior Assistant City Attorney: So said another way it can be a detached ADU a de 5 novo one, a new one, can be located in the rear guard; however, it needs to comply with the 6 rear setback requirements. 7 8 Vice-Chair Waldfogel: So just hypothetically could an applicant then apply to build a garage in 9 the setback and then the following year convert that? 10 11 Mr. Lait: That's correct. The way I mean the way the ordinance is presently written a garage 12 that was built today in the year from now wanted to, were to be converted to ADU that could 13 happen. 14 15 Vice-Chair Waldfogel: So I hope that we would will look into garage applications and make sure 16 there's actually a driveway leading to them. 17 18 Mr. Lait: Yes we would require that. 19 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. Vice-Chair Waldfogel: Great. Thank you. 1 2 Chair Alcheck: I’m sorry. Commissioner Tanaka. 3 4 Commissioner Tanaka: So a few quick questions. I was listening to the conversation about the 5 daylight planes and I had something about that as well. So I think Commissioner Fine 6 mentioned about the fact that if the rear setbacks too deep it eliminates a lot of potential 7 ADUs. Doesn't that also hold true for the daylight plane as well? And so can you explain a little 8 bit how you said the same as the main house so how does the daylight plane work? 9 10 Woman: So the way that the daylight plane is required is that basically you take the structure 11 and you start at an initial height, so for example at the interior side lot line you start at ten feet, 12 ten feet above grade and then you do a 45 degree angle. 13 14 Commissioner Tanaka: Ok. 15 16 Woman: So anything outside that angle would not be allowed. You'd have to build within. 17 18 Commissioner Tanaka: Ok. Ok. 19 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. Woman: And then so for a detached structure it's a different require, the daylight plane 1 requirement is a little different. And that… and then there are also exceptions for daylight 2 plane. And for accessory units the let’s see… so it’s so for a detached structure if it’s within the 3 rear yard, the rear setback, the rear 20 feet it's measured at 8 feet at the property line. 4 5 Commissioner Tanaka: So why more restrictive then the main house? 6 7 Woman: It's closer to the property line. So there's more of a privacy potential. 8 9 Chair Alcheck: Just to clarify it can be inside the set back and so it could theoretically be on the 10 property line as opposed to the setback line. 11 12 Commissioner Tanaka: Yeah, no I understand. But I mean if to the idea of if you don't 13 [unintelligible] actually encourage or enable ADUs, right? I mean so I think the same Adrian, 14 Commissioner Fine, was talking about, right? To loosen up the rear setback because if you have 15 more restrictive daylight plane it also makes it harder for a ADU to happen, right? 16 17 Mr. Lait: So I think there was a distinction if I may the comment about the 20 foot setback is 18 unique to corner lots and wouldn’t apply to an interior property. That the setback is 20 feet for 19 typically 20 feet for a R-1 the rear. 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. 1 Ms. Moitra: For a detached structure. 2 3 Mr. Lait: Ok, so it's a typically a 20 foot step back for a rear yard setback for interior lots, also 4 for corner lots. The corner lot setback was a side setback adjacent to the street. Detached 5 structures could encroach into those areas if they meet certain standards. So (interrupted) 6 7 Commissioner Tanaka: Yeah, I guess for me [unintelligible]. I mean we could talk about what 8 the side setback should be, but to me it doesn't make sense that for the ADU it would have a 9 more restrictive daylight plane than the main house. So… 10 11 Commissioner Fine: So I think there's two issues here. There's the different daylight planes 12 depending how close you are to the lot line and then there's a specific case I brought up which 13 is corner lots and there's the side street setback which is 20 feet and that's just us saying hey, 14 we don't want (interrupted) 15 16 Commissioner Tanaka: No, no (interrupted) 17 18 Commissioner Fine: [Unintelligible] closer to the corner. 19 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. Commissioner Tanaka: Yeah, I get that, but what I'm saying is more about ADUs have a more 1 restrictive daylight plane than the main house which is… 2 3 Mr. Lait: I apologize. I don't think we're being clear in our explanation, to just take a step back a 4 primary so a primary residence is built within the setbacks, the front the rear and the sides. A 5 an ADU detached also would have to comply with those setback requirements. A detached 6 accessory structure, a garage, a bonus room but not unit could encroach into the setback. 7 That's not an ADU. We have talked about garages being located in a setback and those possibly 8 and those being able to convert to an ADU. That's where we run into some of the 9 conversations that we had about privacy and windows, but ADUs do not, ADUs in a detached 10 ADUs built new do not are not any more restricted than the primary residence. 11 12 Commissioner Tanaka: Ok, great. Thank you for clarifying. Because [unintelligible] I would say 13 that doesn't make sense, but ok great. So let's see. So ok, so basements. Right now I think the 14 code and correct me if I’m wrong, but the code says that if you try to put the cars underground 15 in R-1 that counts towards your FAR, right? 16 17 Woman: Actually below grade parking in R-1 is not allowed. 18 19 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. Commissioner Tanaka: Not allowed any more. Ok. Is, when did that change? Because I 1 thought at one point it is allowed, but it counts towards the FAR. 2 3 Woman: I'm not sure when the regulation was, but it's been quite a while since parking below 4 grade in the R-1 has been restricted. 5 6 Commissioner Tanaka: Ok. 7 8 Woman: I mean it's allowed in potentially in other residential zoning districts, but in R-1 9 specifically it's not permitted. 10 11 Commissioner Tanaka: Because the reason why I bring this up is because we have this issue of 12 ok we do ADUs, people convert garages to ADUs, but then we lose parking and then we have 13 this issue of parking. And rather than this kind look at a win/lose type of situation a potential 14 win-win is if you actually allow people to put the cars underground. Because [unintelligible] 15 different ways to have actually putting cars underground without having to have a massive 16 ramp to the to get for the cars. And so I don't understand what's the rational towards banning 17 cars underground? 18 19 Woman: I mean it could be aesthetics because (interrupted) 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. 1 Commissioner Tanaka: But if you have a garage and it had a little elevator it takes the car down 2 how is that going to affect aesthetics? 3 4 Woman: Well I think it's because an R-1 lot typically isn't very deep. 5 6 Commissioner Tanaka: Yeah. 7 8 Woman: And so in order to get that slope, safe slope down (interrupted) 9 10 Commissioner Tanaka: No, no. Forget the slope, forget the ramp, I'm talking about there’s all 11 these kind of they call it puzzle lifts or these lifts for the cars that could jack the car up and 12 down and there's no ramp. 13 14 Woman: Right, well and so basically when this prohibition against underground parking was 15 done it was before we knew about puzzle lifts so I mean that could potentially change the 16 discussion. 17 18 Commissioner Tanaka: Yeah so it sounds like it's kind of dated because I think the situation is 19 and the kind of contention I think the other Commissioners have brought up is well ok if you 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. allow ADUs and you get rid of the parking restriction then you have parking problems on the 1 street potentially, but if you actually allow the cars to go underground where does a very low 2 visual impact, you get the parking and get the more housing units and then it could be a win-3 win. So I think one thing we should really look at is allowing underground parking in R-1 which 4 to me made no sense to ban anyways, especially with the advent of these kind of lift 5 technologies. They're very prevalent. You don't need any more turning radius or anything. You 6 don't need a some sort of lazy susan on your lot to let the cars move out. You don't need to 7 have a gigantic 100 foot ramp to get a car down either anymore. And so this is one way to 8 make it a win-win and lessen the parking issues that would be brought up if you keep on 9 banning the banning cars underground. 10 11 Mr. Lait: I see the provision in the code. I think you're certainly remembering it correctly 12 because it does say that underground parking is prohibited in single family uses except 13 pursuant to a variance granted in accordance with our requirements and in which case the area 14 of the underground parking shall be counted toward the FAR for the site. So you have that 15 memory of that and I believe Elaina’s [Note-is this woman?] correct. It's probably where I've 16 seen it in other cities. It's the visual aesthetic of the neighborhood and so forth (interrupted) 17 18 Commissioner Tanaka: Yeah, but with the elevator there’s no such thing. 19 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. Mr. Lait: Absolutely, absolutely. And we haven't updated this code provision in a long time. So 1 I've got this flagged as a discussion point that may be continued. 2 3 Commissioner Tanaka: Because I think the idea of ADUs makes sense, but everyone’s worried 4 about the FAR, we’re worried about parking impacts, but by actually allowing the cars to be 5 underground with these elevators which are not terribly expensive anymore it solves a lot of 6 problems, right? You could get the housing units. You could get the parking without the… you 7 could get the additional units without the parking impacts. Visually there's not much 8 difference. It looks almost identical. So I think that we need to update the code and think a 9 little bit more creatively on this. 10 11 So let's see, my last point here is so in the case when there is no chance to put the cars 12 underground which I think is to the right solution is when one other thing for us to think about 13 is potentially having some sort of large impact fee if there is no parking. So let's say the streets 14 are impacted or might be impacted to assess a large fee for that ADU to make up for the 15 parking. Because then that could go into a program some sort of traffic mitigation program or 16 parking mitigation program and so that could maybe make up for it kind of like an in lieu fee so 17 to speak. So that’s another thing that I’d like to Commission to consider. 18 19 Chair Alcheck: Commissioner Gardias. 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. 1 Commissioner Gardias: Thank you. I'm going to say like this way. So I like the way that staff 2 approach it that pretty much when I was reviewing the proposed regulation it just puts us into 3 the compliance with the state law, nothing more nothing less. I think there is an embedded risk 4 in moving beyond today in moving today beyond the compliance requirement because we 5 would need to start changing the code in the variety of the ways. And I think that at this 6 moment we are pretty much not prepared to look into those issues because there will be those 7 would be very complex. They would include the privacy, the change of the daylight planes, 8 number of the issues that we cannot foresee at the moment and it will be require farther study. 9 So that's I think that's the way to approach it today. In the future we should maybe discuss 10 other options knowing that there is a desire within the community to increase the supply. 11 12 The second aspect is that I think that what this study is lacking although we must do this 13 because it we must comply with the law, I think that we need to understand the nominal vs real 14 change. There is number of the units ADUs that are being currently occupied because of 15 various reasons. So I'd like to understand what staff what research can be provided to put the 16 data in front of this Commission and the Council to tell us what would be the real number of 17 the occupants giving that some of the units are currently being occupied. Because the number 18 that we have currently of the 2,466 potential units at the current 35 percentage threshold is 19 just a theoretical the way they understand it. We would need to somehow do a study to count 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. units that are being currently occupied. I don't know how to do it. I know that that people may 1 not come forward and not declare themselves not to be compliant, but there may be some 2 statistical way or some other smart approach that would just convert those units into the 3 number of the potential increase in the occupancy. 4 5 There is another issue that needs to be addressed in the proposed regulation which is a 6 compliance. And maybe I will just give an example of my neighborhood that is changing in this 7 way that some streets there is number of the housing, houses that are being owned by some 8 outside ownership and being leased to those that want to live in Palo Alto thus decreasing the 9 local ownership of those houses. Which from the perspective of me as a resident of the 10 [community] center it just decreases number of the owners that come and care about their 11 properties. They pretty much participate and then contribute to the community and which is 12 attribute and the value of Palo Alto. That’s the way I see it. So saying this I'd like to understand 13 and there should be some compliance measure to make sure that those units are truly being 14 occupied by the owners as it is required in this regulation. 15 16 Thank you. I stop at this. I have more comments, but they are granular at in their scope so I 17 will just participate in the second round. Thank you. 18 19 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. Chair Alcheck: Ok, so for the second round I'm going to let you guys light it up and decide who 1 wants to speak. I want to reiterate that what Commissioner Gardias is saying and some of the 2 other Commissioners have sort of said are suggestions on what would be a more involved 3 approach to reviewing this. When City Council sent us this the idea was to look into ways of 4 encouraging potentially the development of ADUs and what policies we could change. This is 5 sort of a divergent process and I wonder if there's a way for us to do both. Move this on and 6 also create a process by which we could explore some of these deeper questions about changes 7 that would result in sort of the consequences that we'd like to do. So I have one light. It's 8 Commissioner Rosenblum. If you guys want to speak please just light it up and then maybe 9 after this round we'll move forward with a Motion. 10 11 Commissioner Rosenblum: Ok, so a couple things. First, this is the third session so we've had 12 two study sessions and so I do think that we've had adequate time to review information, 13 request additional information, request additional information from staff, hear from residents, 14 and so I do think that now is the time where based on what we’ve understood to date to make 15 some recommendations. 16 17 I wanted to just give a little bit of context in the comment I made about the difference between 18 Vancouver and Portland because I think it's edifying. Yeah. So Portland only has one percent of 19 their housing stock converted to ADUs despite relaxing many regulations and being cited as one 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. of America's top cities for ADUs. And so a lot of folks out there that are worried about Palo Alto 1 if we hit it out of the park with this you're talking about one percent additional units created. 2 Where Vancouver went further is pretty dramatic. So they don't require off street parking for 3 each ADU. They don't require the owner to live on site. They allow both an attached ADU and 4 a detached ADU. They allow two ADUs on the property. They award additional occupancy. 5 They give extra FAR bonuses. They don't have design criteria to match the design of the site. 6 So they really are encouraging this well beyond what any other city has done. The most 7 American cities have been able to really create in terms of new housing stock even with the 8 things, even the most radical things that we've talked about are one percent more. And so I 9 this I've made a joke before this is like Schrodinger's housing unit. Everyone says A. it's not to 10 produce much, but B. It's going to clog my neighborhood with traffic. And I think that the 11 answer unfortunately is it won't produce a lot yet, but it's a great start and we should learn 12 more and start pushing the envelope. 13 14 So I have nothing further. After listening to all the Commissioners I like in addition to the things 15 I had said I agree with the Chair that I had said I didn't want more than 30 days, but I agree 60 16 days and more. I don't see I think transience isn’t a is an issue. I don't see like a logical 17 objection for why I would want a longer tenancy requirement. I agree with protections, existing 18 protections for trees. I think that’s important to not endanger our canopy. Other than that I 19 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. feel good about the first round of trying to go at least to encourage ADUs as much as possible 1 without going all the way to the Vancouver model. 2 3 Chair Alcheck: Ok, I don't have a lot of… I have one more light. If you guys are ready and you 4 don't want to continue in this round we can move forward with the Motion and some 5 amendments in sort of the same vein that we did the last one. Did you light it up or is that just? 6 Ok, Commissioner Gardias. 7 8 Commissioner Gardias: Well I have a number of the comments so if you could just at least take 9 this into account. So just this map and the distance from transportation and we discussed this 10 at the break with Assistant Director Jonathan Lait. There is a definition of the transportation 11 that was updated by the Green Building Council in the Version 5 of Leadership in Energy & 12 Environmental Design (LEED) regulations that is that went into life I believe on October 31st of 13 2016 that defines public transportation in a more strict way. And my proposal would be to 14 adopt in absence of the state definition my proposal would be to adopt that definition although 15 it would be stricter than this one. And for those that may not be familiar with this definition it 16 requires public transportation to be available on Saturday and excludes certain types of 17 transportation. So for example municipal buses are not included and certain transportation 18 that doesn't come on during the weekend I believe that Sunday is excluded are also excluded. 19 So in this case I'm not sure if Marguerite buses would be included in this definition. So it's 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. much stricter definition, but there is a congruency with the Green Building Council definition 1 would meet the drive of location of certain Below Market Rate (BMR) and additional units 2 closer to the transportation centers. So that is in terms of the transportation definition. 3 4 Now I have a couple of other comments that I would like to run by you. And they are rather 5 random. First, (interrupted) 6 7 Chair Alcheck: Actually before you go on why don’t we get clarification? Is that definition 8 possible? 9 10 Mr. Lait: Yes. So the state law puts the term out of public transit, but didn't define it in this 11 ordinance. And so we wanted to put something around it and for a starting place we included 12 the language that we have here in the ordinance on packet Page 142. I will say that our 13 transcription here is not exactly aligned, I’m sorry? I'm on packet Page 142, Page 16 of the 14 ordinance. So we had this idea of borrowing from the SB 743 which does set forth some 15 definitions of what public transit would be and while that was our guide I think what we 16 ultimately ended up putting in the ordinance didn't quite align with that regulation. So I could 17 talk about that. I think that the what would be helpful from the Commission is to know which 18 way you want to go on this. If you want to maximize the number of properties that would be 19 exempt from parking because of a proximity to a bus line that meet that has a head way of 15 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. minutes during the peak morning and afternoon times and the rail stations and the fixed 1 railway possibly inclusive of the Marguerite shuttle that's the map that you have in front of you. 2 I think that's the most aggressive way to go. Another map would be and I actually have it in 3 front of me and I’ll I can show it to you and I could pass it around if there is interest in this 4 would be to do a half mile radius around each of the two stations in Palo Alto and the one that's 5 over in Mountain View. There's also one at I think it’s what, San Antonio and El Camino? 6 Arastradero and El Camino. There is a bus line that would also qualify, two bus lines that would 7 qualify by the definition that we're trying to… another definition. So this would be a more 8 minimalist approach. 9 10 Chair Alcheck: So just to be clear we can in theory tonight amend the language in this draft 11 ordinance for example to treat buses and rail separately. So you could say three quarters of a 12 mile for rail and half a mile for the bus? I mean do we have a lot of liberty here? 13 14 Mr. Lait: So the half mile standard is set forth in the state law and it says public transit. We can 15 I think there’s some latitude and obviously so Cara can speak to that, but there is some latitude 16 in how we define what public transit is. 17 18 Chair Alcheck: But it has to be we can't increase that radius is what you're saying? For example 19 tonight we had multiple speakers who suggested they were 0.6 miles from a railway station. I 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. mean I'm only asking in theory is it all up on the table as long as we expand it and we and not 1 contract it? 2 3 Mr. Lait: Right. You can contract but not expand the radius. 4 5 Chair Alcheck: You can contract the radius, but not… 6 7 Mr. Lait: You can make it a smaller radius not a bigger radius. 8 9 Chair Alcheck: Ok. I thought it was the opposite. That's why… 10 11 Mr. Lait: It’s something like that. 12 13 Chair Alcheck: Ok, so for clarity Cara (interrupted) 14 15 Mr. Lait: I’ll work on my contractions. 16 17 Ms. Silver: Right. It at a minimum you have to give these parking exemptions to units that are 18 within a half mile radius of public transit. If you also want to provide additional parking 19 exemptions you can go beyond that by specifying 0.6 six miles or greater. 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. 1 Chair Alcheck: And can it be separate, like if you wanted to choose to treat railway stations as 2 0.6, but (interrupted) 3 4 Ms. Silver: Yes. 5 6 Chair Alcheck: Bus terminals. You can, you have real liberty? 7 8 Ms. Silver: Yes, provided you meet the minimum of 0.5. 9 10 Chair Alcheck: Ok. Alright. Why don't we go back? 11 12 Ms. Silver: And one other point that I did want to add on this issue and we should have said this 13 is at the starting is that this ordinance these three bills that have just been adopted were on a 14 very tight time frame and they came down very quickly and there are a lot of ambiguities in the 15 state language and in the minimum requirements. And so HCD the housing of Housing and 16 Community Development Department (HCD) at the state level has received a lot of questions 17 from cities about implementing regulations. And the and HCD is expected to issue at some 18 clarifications in the next maybe couple weeks actually. So we'll be monitoring that and when 19 this comes to Council we may find that the definition of public transit has become more clear, 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. but at this point it's not defined. You have several options. You could just use the term public 1 transit and then wait and see what the state does with that definition. You could have the 2 Director promulgate regulations or you could try to define that in the ordinance as a 3 recommendation to Council tonight. 4 5 Chair Alcheck: Ok, let's go back to Commissioner Gardias and his proposal. 6 7 Commissioner Gardias: Yeah so giving this discussion I think this is still an open item because it 8 may have a general impact. So let's say that Middlefield becomes based on this definition if 9 value, if VTA Number 35 is continues its run, is recognized as a public transportation say that as 10 opposed to half an hour run it runs every 15 minutes then pretty much it would allow the 11 properties along Middlefield to have ADUs recognized. So without parking, yes. So that's 12 pretty much I think it's very significant so for this reason I believe that we should just not wait 13 on this tonight, just direct staff to come back to us with farther clarification either from the 14 state or explore various options and green council, Green Building Council would be one of 15 those. 16 17 So if I may continue on some other items I'd like to just ask a couple of questions because I 18 need some clarification. We have if I go through the detailed pronouncements we talk about 19 fire sprinklers and then example is on Page 139 and this is Paragraph 18.42.040a that speaks 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. that fire sprinklers are not required, they are not required in the primary residence I believe 1 that this is subject of the building code as opposed to the planning. So for this reason I propose 2 to strike it out of this regulation. 3 4 Mr. Lait: Yeah, this is just straight from the state law. This is in the bill that was passed by the 5 Governor. 6 7 Commissioner Gardias: Oh so it's just a copy of this? 8 9 Mr. Lait: Yes. 10 11 Commissioner Gardias: But is the place is this regulation place for this pronouncement? 12 13 Mr. Lait: Yeah, I guess (interrupted) 14 15 Commissioner Gardias: The reason is like pretty much because if I am... from your perspective, 16 right, it just goes through the planning and then goes through the building, right? So if I am a 17 building inspector and the reviewer of the plans I'd be looking for this particular paragraph in 18 the building regulations as opposed to planning regulation. 19 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. Mr. Lait: Yes. 1 2 Commissioner Gardias: So… 3 4 Mr. Lait: Yeah and I think it's helpful because when people are designing something they’re first 5 looking at these codes because builders have a sense for and the architects have a sense for 6 what the building code requirements are, but they also look at these things as they're 7 developing their plans or conceptual plans. So having that notation here I think is helpful to 8 inform what's going to the total cost of building this and so forth. So it's it doesn't exempt or 9 preempt in any way the building code that we have adopted. 10 11 Commissioner Gardias: I understand, but I just want to make sure that this is pretty much it's 12 not omitted on the other side because the builders would not read this, they would read the 13 other regulations. So I mean it's up to you. I thought that it would be clean just to remove it 14 here and just put it in the other document, but it's I'm not very hard on this. 15 16 So there is to another item that I would like to discuss which is and just to give you an example 17 we're talking on the Page 141 we talk about that the maximum size of the accessory, detached 18 ADU is there a minimum requirement in this regulation or some other regulation of the ideal 19 that cannot be built? Is there a minimum size that cannot be erected? 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. 1 Mr. Lait: Ok, so other than any minimums that might be set forth in the building technical codes 2 in terms of size of bedrooms and things of that nature there is no minimum. There are 3 maximums established, but no minimums. 4 5 Commissioner Gardias: Right. And so I believe that there should be a minimum unless it would 6 not be compliant with the law because of the a I mean first of all I would ask you to research it 7 please. That's number one. Number two is that because there are because of the health and 8 safety regulations, health regulations they may require certain minimum sizes of the dwelling 9 units or the rooms, right? Because we cannot, so human cannot live only one square foot 10 facility. So but if so there should be somewhere written about the minimum size. 11 12 Regardless I believe that we should establish a minimum of 250 sq ft which would be equivalent 13 of the 25 square meters. And the reason why I am giving these number is because in the 14 number of the countries that size is recognized as the micro as the bottom micro unit that we 15 should not go lower than this. If you proof if you prove me that this should be higher because 16 of some other regulations I will agree with you, right? But I think that 250 sq ft should be 17 minimum. 18 19 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. Another item is can I continue? So another item is on Page 140 and this is about the privacy. 1 This is paragraph at the top, six… six of… yeah, it’s a continuation of from the paragraph from 2 the prior page. It talks about the privacy. I think that this is not clear from the planning 3 perspective. It refers to the building techniques and methodologies as opposed to address 4 planning regulations. So it's just such just like obscure glazing, placement of the windows and 5 decks. This is Page one four zero, 140. I think that this particular paragraph is a subject to 6 interpretation and my suggestion would be just to rewrite it, remove the sentence that talks 7 about the techniques because the planning regulation is not about the building techniques. 8 There’s room in some other place and we talk about this, but I think that the language should 9 speak about that second story ADU should not intrude the privacy of the adjacent properties. 10 And also would need to refer to the privacy of the main residence as well. Because the reason 11 is like this, that if there is a second unit is being rented out or the owners, original owners lives 12 in the second unit then there may be a privacy violation on the both sites. I don't have a 13 specific language so for this reason I'm asking staff just to propose the language just giving 14 those reasons. 15 16 Mr. Lait: May I comment to that? 17 18 Chair Alcheck: Hold on. What I'm going to suggest that we do is essentially work the same way 19 we did the last agenda item which is that we're going proceed with a Motion at some point and 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. then each of these suggestions I’m going to create, I’m going to ask you to make a Friendly 1 Amendment for and then if you get a second or excuse me, and if it's accepted by the makers 2 or an Unfriendly Amendment that you can get a second for and then what we’ll do is we'll just 3 take a vote on it. In this particular case we don't have specific, in this particular case where we 4 don't have specific language that's a little trickier. So I'm not… how would you like to proceed 5 in that regard? 6 7 Commissioner Gardias: So I agree with you, right? And I think that I agree with the way that 8 you want to approach it. I think that because the way that staff wrote it that it’s compliant with 9 the law and from this perspective it's good to go. I totally agree with your approach just to 10 move it out of door and just send it to the Council, but giving that there are some items like this 11 one up and proximity to transportation is another one and a couple of others they have. 12 13 Chair Alcheck: Right. 14 15 Commissioner Gardias: I’m not really sure how to pursue in those, with those items. I think that 16 maybe we can just recommend this to the Council as a general approach and then maybe give 17 ourselves ability or time to work on those details and then return to the Council with those 18 specific calls that we are addressing. 19 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. Chair Alcheck: No, I appreciate that. I guess my what I would like to do is determine whether 1 there is sort of a shared interest among Commissioners to explore some of the nuanced 2 questions you have. I do think that this particular paragraph which I think there is some 3 additional language for the privacy paragraph that is out there I think there are sort of notions 4 of how that could be edited, but before I would suggest we encourage staff to sort of pursue 5 something I want to make sure there's consensus. Do you want to? Go ahead. 6 7 Commissioner Rosenblum: I have a suggestion for maybe a process. 8 9 Chair Alcheck: Good. 10 11 Commissioner Rosenblum: And let me know if you would agree with this. I would structure this 12 into a series of parameters. So first is lot size. Second is FAR. Third as parking requirements 13 and just go one by one. So in terms of lot size there's different opinions here. One opinion 14 might be no bonus above minimal conforming lots. Another might be 20 percent bonus, 15 etcetera. And let's decide that first and then next there's parking requirements. Some would 16 say well it has to be within a half a mile of transit and transit defined is X. I've had a proposal 17 for neighborhoods with parking below 50 percent utilization to be studied and perhaps park 18 your car [unintelligible]. So I would think that we could knock a few of them off and there 19 might be then we'll get to some others that are much more difficult and I think Commissioner 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. Gardias has brought up some points that I hadn't really considered. So it may be that there's 1 still some that we don't really know how to handle. Privacy requirements between different 2 units and daylight planes between different units for example which I'd never considered. 3 4 Chair Alcheck: Right. 5 6 Commissioner Rosenblum: But I think some of them we probably do have informed opinions on 7 already and we could probably knock those out and then get down to the (interrupted) 8 9 Chair Alcheck: No, I appreciate that. My, I want to avoid a straw poll process so my goal would 10 be to have the Motion go on the table and then amendments that would for example I mean I 11 don't want to have a discussion about I don't want to go through a process where everybody 12 can opine on the lot size requirement. I’d like an individual to make a Motion on what they 13 think that lot size requirement should be and if the community, if there's another individual 14 that has a separate amendment we can make that, we can vote on them. Because I think we 15 are we understand each other. I think everybody has an opinion on it and I think we need to 16 figure out where we are. 17 18 My concern is that when I create that amendment opportunity that some of these amendments 19 aren't specific. They're very general and they're requests for more information. And I think 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. what I would like to do is let's like we did in the last session let's see if we can maybe get 1 through the Motion process and then if you want to make a secondary Motion to explore 2 specific topics in maybe a second because I also think that there is interest among this 3 Commission to continue exploring maybe the this topic with more time. And maybe we you 4 create a Motion that can get support for specific sort of investigative analysis. I want to do 5 both. I want to do both. Can you wrap up so that we can begin that process? Do you have 6 some specific? 7 8 Commissioner Gardias: Yeah, I will run a couple of more by (interrupted) 9 10 Chair Alcheck: Ok. 11 12 Commissioner Gardias: By the staff and by yourself, but yeah I totally agree, right? I think that 13 this item that I am addressing it’s those are just the subjects that or some specific 14 pronouncements that may open disagreements when specific [quality us of the quality aspects] 15 and for this reason I just would not like would at least as a minimum would like to have Council 16 being informed that we would provide farther clarification on those specific paragraphs. I 17 would be pretty much afraid of just sending this card blank to Council and then hearing pretty 18 much comments that we didn't review some loopholes or bad apples. 19 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. Chair Alcheck: Yeah, I can appreciate that. 1 2 Commissioner Gardias: Ok, so I'm going to just finish this very quickly in the interest of time, 3 right? So there is a in the on the Page 141 I think that there is lack of the kitchen facility 4 requirements for those ADUs. It appears in some paragraphs and then it seems to me that 5 some others they have no kitchen facility. There should be kitchen facility for all the units. So 6 I'm asking just to look into those and just provide uniform requirement for kitchen facilities 7 throughout. 8 9 Ms. Silver: Just to address that comment the kitchen facilities are contained in the definitional 10 sections, not in the development standards. So it's in the beginning part of the ordinance. 11 12 Commissioner Gardias: That’s right, but I think that they also appear on the on some other 13 subsequent sections so in (interrupted) 14 15 Mr. Lait: It's called out more specifically for the JADUs. 16 17 Commissioner Gardias: Exactly. Yeah. So for this reason I caught it and then I just saw this was 18 a discrepancy. So either it should be removed from the junior and just left only in the 19 definitions or just provide it throughout because otherwise it's confusing. 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. 1 So a couple of others and I just in the interest of time I just don't want to spend more time, 2 right? So other items was that amperage of the, I'm sorry, voltage of the electrical service and 3 I'm not sure if this was also a copy of the state law. Was it? Because the ranges, some ranges 4 may be on the 208 volts as opposed to 120. So that was the same thinking when I was reading 5 this, why is it here as opposed to in the building code? 6 7 Ms. Silver: Exactly. It’s a state law requirement. 8 9 Commissioner Gardias: Ok. So we can leave it if that's the case, but I think that the place should 10 be somewhere else. Also which was the most probably controversial was the paragraph 11 about… hold on a second, let me just find this; just a moment. Yeah this is [unintelligible] just 12 ask a question of on Page 143 there is a Paragraph E right at the top of the page that talks 13 about the car share vehicle and that's probably also copy from the state law. It has nothing to 14 do with our? Ok. So that's that clarifies this. 15 16 And probably I also I wanted to have a clarification. It's on Page 140. It talks about the 17 entrances. This is Paragraph 6 at the bottom, second paragraph from the bottom. It talks 18 about the dwelling units may not have entranceways facing the same lot line property. And 19 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. now I understanding how it was written, I understand that this is another copy from the state 1 law. So could you tell me please what they were thinking when they were writing this? 2 3 Mr. Lait: This is actually our local ordinance that we have in place today. And the interest here I 4 believe is to maintain the yeah, right. Two, I guess two things. One is sort of maintain the 5 pattern and character of development of a single family neighborhood and also that the ADU 6 be subordinate to the principal structure. So I think the interest here is to make one more not 7 as prominently visible from the street so that they are… right. So it maintains that existing 8 neighborhood pattern. 9 10 Commissioner Gardias: So you are telling me that pretty much the entryways cannot be 11 oriented the same way. When I am reading this it says that they… 12 13 Mr. Lait: You don't want two front, you don’t want two front doors in front of the house, one 14 going to the ADU and one going to the primary residence. 15 16 Commissioner Gardias: Exactly. Even if the second attached unit is behind the first one and that 17 it's pretty much it’s setback let's say 20 feet and that door would be the logically the shortest 18 entryway to the unit. 19 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. Mr. Lait: That's how this reads. 1 2 Commissioner Gardias: Yeah, so I just I didn't understand it. There may be some logic. So my 3 question would be to the staff, right, just if we can just prove it. That may be the valid point, 4 but I just when I was reading it was not logical to me giving that one unit could be offset in the 5 relationship to the other. 6 7 Mr. Lait: Thank you. Yeah, I think we can look at that. 8 9 Commissioner Gardias: Ok. So I think that and then there was a last question that I had here 10 was about we talk about the rent, the rental of the unit. We don't talk about the lease of the 11 unit. What's the, why this pronouncement only talks about the rental, rents of the units as 12 opposed to leasing. 13 14 Chair Alcheck: I’m just I believe those words are interchangeable. I don't think there's actually a 15 legal discrepancy there. 16 17 Commissioner Gardias: Are they? They are. Very good. Ok, so I think that those were all the 18 comments that I had. Thank you. 19 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. Chair Alcheck: Ok, I'm going to… do you have a comment? Commissioner Rosenblum do you 1 have a comment? Ok. I’d like to open the floor up to see if there's anybody who'd like to make 2 a Motion. Commissioner Waldfogel [note-Vice-Chair]. 3 4 MOTION 5 6 Vice-Chair Waldfogel: Trying to find the right button to push here. I would like to make a 7 Motion for the staff recommendation to adopt the ordinance in Attachment A. 8 9 SECOND 10 11 Chair Alcheck: Ok. I will second that Motion. And at this time I want to ask if there are any 12 amendments, specific amendments to the draft. Commissioner Tanaka. 13 14 FRIENDLY AMENDMENT #1 15 16 Commissioner Tanaka: Yeah, so what I’d like to do and staff’s probably going to have some 17 issues on this, but since I’m not sure it’s actually in this ordinance something that I talked about 18 earlier which is that I think basement parking should be allowed and it should not count 19 towards the FAR. Because I think this is probably the one thing that will enable ADUs to really 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. be acceptable and proliferate here in Palo Alto is to have underground parking. So I want to 1 make the Friendly Amendment to add that. 2 3 Chair Alcheck: Would you like to accept that as a Friendly Amendment? You don’t have to. 4 5 Mr. Lait: So can I just ask a question on that? 6 7 Chair Alcheck: Yes. 8 9 Mr. Lait: Is the interest there to allow subterranean or basement parking as it relates to ADUs 10 only or would you is your interest more broad and it would apply to any single family? 11 12 Commissioner Tanaka: I think it should be more broad. I think it’s something which maybe 13 before they had the car lifts or elevators or whatever you’re going to call them, puzzle lifts, 14 maybe there was kind of significant issue, but I think this solves a lot of problems. And 15 especially some neighborhoods there’s a lot of parking issues and if you could get more cars off 16 the street it’s a good thing. So but I don't know in terms of the purview of this Motion; if not 17 then for ADUs least, right? Because I think this is going to be a key enabling element to allow 18 ADUs to be successful here. 19 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. Mr. Lait: Yeah, I think my concern is the way we've agendized this item. We're focused on 1 ADUs and so if (interrupted) 2 3 Commissioner Tanaka: Ok so in context of ADUs then. 4 5 Mr. Lait: Ok. 6 7 FRIENDLY AMENDMENT #1 REJECTED 8 9 Vice-Chair Waldfogel: So I'd prefer not to accept this as a Friendly Amendment for the reason 10 that I think this is an important question that needs to be looked at more globally. I don't think 11 it's an ADU specific question. I think we need to look at a broadly and in the R-1 district. So 12 that's why I would not accept it as a Friendly Amendment. 13 14 UNFRIENDLY AMENDMENT #1 15 16 Chair Alcheck: Ok, as an Unfriendly Amendment do I have a… hold on. There are a lot of lights 17 on right now. So you're going to have to speak, you just speak up if you have I need a second 18 for this Unfriendly Amendment. Yeah, please. 19 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. Commissioner Fine: I'm not going to support it at this moment, but I agree with Commissioner 1 Tanaka that this is something to be explored, but I would actually say citywide beyond just 2 ADUs. 3 4 UNFRIENDLY AMENDMENT #1 FAILED 5 6 Chair Alcheck: Ok, so without a second I'm going to move on. Do we have, I have four lights so 7 Commissioner Fine would you like to propose an amendment? 8 9 UNFRIENDLY AMENDMENT #2 10 11 Commissioner Fine: I'd like to propose removing the minimum lot size standard. 12 13 SECOND 14 15 Commissioner Rosenblum: Second. 16 17 Chair Alcheck: Well, hold on. Let's see if it's a friendly. 18 19 Vice-Chair Waldfogel: Let's just take the second. 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. 1 Chair Alcheck: Ok, alright. Ok, so would you like to speak to your amendment? 2 3 Commissioner Fine: Sure. So I mean if you just look at the charts the two largest impediments 4 to ADU development in the City aside from providing incentives are parking requirements and 5 minimum lot sizes. Most of our lot sizes were cut very close to their zoning designation 6 therefore they're ineligible for ADUs if we require them to be above that. I think it's very 7 important for us to a allow a good number of parcels to be included or eligible for ADUs if 8 they’re able to create it and removing the lot size is a good way to do that. 9 10 Chair Alcheck: Ok. Commissioner Rosenblum would you like to speak to your second? 11 12 Commissioner Rosenblum: Yes, but first I want to make sure that we're in agreement. I'd say 13 that remove minimum lot sizes providing the lot is compliant. 14 15 Commissioner Fine: Yes. Not substandard. Yes. 16 17 Commissioner Rosenblum: Ok, yeah. No other further comment as long as it's compliant with 18 an existing zoning for that zoning area. 19 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. VOTE 1 2 Chair Alcheck: Ok. We are going to vote on this Unfriendly Amendment. All those in favor 3 please say aye and raise your hand. I count four. All those not favor please raise your hand. Ok 4 we have a vote of four to two amending the current Motion. Alright, Commissioner Rosenblum 5 do you have an amendment? 6 7 UNFRIENDLY AMENDMENT #2 PASSED (4-2) 8 9 UNFRIENDLY AMENDMENT #3 10 11 Commissioner Rosenblum: Yes, I'd like to extend the radius around our three Caltrain stations 12 or around the University Avenue, California Avenue, and San Antonio train stations to 0.75 for 13 the reduced parking requirement. 14 15 Chair Alcheck: Commissioner Waldfogel [note-Vice-Chair] do you accept this as a Friendly 16 Amendment? 17 18 Vice-Chair Waldfogel: I’d prefer to take everything unfriendly. 19 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. Chair Alcheck: Ok. So I think that’s fair. 1 2 Vice-Chair Waldfogel: I think it's a nice process. 3 4 Chair Alcheck: Ok, I think that's fair. Do we have a second for this Unfriendly Amendment? We 5 have a second. 6 7 SECOND 8 9 Commissioner Fine: I'll second it for the time being. I think we could be more aggressive on the 10 parking stuff. I'd also like to point out there's one other Caltrain station, the Stanford station. 11 12 Chair Alcheck: Ok, so [unintelligible] all four then? Ok, alright. Would you care to speak to? 13 14 Commissioner Rosenblum: Actually no, not on the Stanford Station. I don't think it makes sense 15 for the purpose of this. I'll speak to it briefly. I'm going to do another just there’s going to be a 16 couple of parking amendments. The next one is more significant, but we’ll do one at a time. 17 18 Chair Alcheck: Yeah, I let’s deal with them. [Unintelligible] I would characterize this as the 19 transit (interrupted) 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. 1 Commissioner Rosenblum: Yes, transit oriented. 2 3 Chair Alcheck: Amendment so let’s do [unintelligible]. 4 5 Commissioner Rosenblum: So I’ll speak to it. Based on the map that was provided actually this 6 probably won't have a huge effect. There are not that many properties affected; however, I 7 want to divide this in two parts. There is Part A where people seeking a car light lifestyle living 8 near an area that is both commercially vibrant and has access transportations which is why I am 9 saying for the Caltrain stations versus bus lines. This is intended for people who are living a 10 lifestyle that is close to services and fairly close to transportation. I agree with several of the 11 petitioners that I'm not sure I buy that a bus line will replace your need for cars especially 12 because you're often not near a commercial center. I also don't believe this affects that many 13 units because the units based on the map that are close to these stations are many of them 14 would not be able to support this, but I think it's important that we recognize that for car light 15 lifestyles this would be an ideal living situation. 16 17 The reason to extend it is based on my personal experience. Again I live 0.6. If I draw or eyeball 18 a line 0.75 it's well within range of people looking to achieve car light lifestyles. 19 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. Chair Alcheck: Commissioner Fine would you like speak your second? 1 2 Commissioner Fine: No comment. 3 4 Chair Alcheck: Ok. I’d like to place this to a vote. You know actually I just realized that I didn't 5 give the dissenters of our last Unfriendly Amendment an opportunity to speak. So… ok so, but I 6 will moving forward. So if you do you want to speak before we take the vote? 7 8 Vice-Chair Waldfogel: Yes, may I speak before we take the vote? 9 10 Chair Alcheck: Ok. 11 12 Vice-Chair Waldfogel: Is that procedure that we allow? 13 14 Chair Alcheck: I will allow it this time, but I will decide each time. 15 16 Vice-Chair Waldfogel: Strict. I would support this specifically around the University Ave. Caltrain 17 station, but which I does think meets the criteria that Commissioner Rosenblum spoke to, but I 18 don't believe the Cal. Ave., the Stanford station meet that criteria and I am not sure that I could 19 speak to the San Antonio/Mountain View station. 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. 1 Chair Alcheck: Ok. Let me quickly ask the Commissioners who proposed this amendment are 2 you willing to bifurcate this vote based on each station or would you like to do it as all three? 3 4 Commissioner Rosenblum: Again, just to be clear on this to Vice-Chair. The main reason for this 5 is not the that the San Antonio Caltrain per se will replace a car, but that it's a dense 6 commercially viable area that's anchored by a transit station. And so those seeking car light 7 lifestyles would likely seek one of these three areas and so I'd rather not bifurcate station by 8 station and especially given the fact that within the University Avenue corridor as you can see 9 on the map there is really no lots available so that doing this would not really add anything. 10 11 Commissioner Fine: I’ll just follow up on that. I’m also against bifurcating these based on 12 stations. I think California Ave. and University with regards to Caltrain exhibits similar land use 13 and housing patterns. This moves a little bit more into Old Palo Alto in some ways and then the 14 Cal. Ave. one would be able to cover this little corner of College Terrace that’s not covered. I'll 15 note it's kind of funny I live two blocks from my parents. My house is currently within the green 16 marker, but theirs is not because of this half mile radius currently. 17 18 VOTE 19 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. Chair Alcheck: Ok, I'm I would like us to proceed with a vote on this Unfriendly Amendment. All 1 those in favor please say aye and raise your hand. Ok, that is four. All those dissenting please 2 raise your hand. Ok, we have two dissenters. Would either of you like to speak to your 3 dissent? Please. Commissioner Waldfogel [note-Vice-Chair]. 4 5 UNFRIENDLY AMENDMENT #3 PASSED (4-2) 6 7 Vice-Chair Waldfogel: Yeah, I'm sorry. The comment is that on in Cal. Ave. in particular there's 8 the Caltrain track forms a natural barrier between the Cal. Ave. business district and the 9 neighborhood on the other side and so I don't think we're really… I'm sorry? Right, but it's a 10 natural, It's a natural city barrier. So in terms of how those two districts function it's completely 11 different and so I think that we're doing something we're it's an unnatural act to combine those 12 two whereas it's a natural act to combine them on the University Ave. corridor. 13 14 Chair Alcheck: Ok. I just before we continue I just want to make sure are, is staff following this? 15 So we have a Motion with two Unfriendly Amendments that have passed. 16 17 Mr. Lait: Totally got it. 18 19 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. Chair Alcheck: Ok, alright. I have did you relight? Ok. I'm going to move to Commissioner 1 Waldfogel [note-Vice-Chair]. Do you have an amendment to your Motion? 2 3 Vice-Chair Waldfogel: Yes. I have in a an addition. Let me get the right page in the document. 4 It's a privacy amendment addition. 5 6 Chair Alcheck: We are on Page 140. 7 8 Vice-Chair Waldfogel: We’re on Page 140. 9 10 Chair Alcheck: Number 6. 11 12 Vice-Chair Waldfogel: [Unintelligible] this specifically is in it's in Number 8. So it's on Page 141. 13 14 Chair Alcheck: Ok. 15 16 FRIENDLY AMENDMENT #2 17 18 Vice-Chair Waldfogel: And it's it adds an additional development standard, Standard 5, for 19 newer converted detached ADUs. There shall be no windows, doors, mechanical equipment or 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. venting or exhaust systems located within six feet of a property line. So this is just 1 guaranteeing some privacy and protection from noise for neighbors. 2 3 FRIENDLY AMENDMENT #2 ACCEPTED, VOTE 4 5 Chair Alcheck: I presume you accept that as a Friendly Amendment. I do as well. I just want to 6 before we take a vote on this does anybody need any clarification on what we're talking about 7 here? I'd be happy to help clarify this. What this particular edit does is it suggests that if a that 8 in the event of a garage conversion there are certain aspects, certain development standards 9 that will apply that are very typical of our current development standards for units that are 10 developed within the interior lot lines and this would basically take the language a step further 11 to make sure that you didn't have a window within three feet of a fence or a kitchen exhaust 12 fan or any kind of mechanical equipment that because of the fact that a garage could 13 theoretically be within a site setback that would not permit other elements that are potentially 14 less appealing to be in that same side setback. Ok? That's what that language does. 15 16 Ok, let's take a vote on it. Any, all those in favor of this amended language please say aye and 17 raise your hand. Ok, I have four. All those not in favor of the amended language? I have two. 18 Would those not in favor of the amended language like to speak to their dissent? 19 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. FRIENDLY AMENDMENT #2 PASSED (4-2) 1 2 Commissioner Rosenblum: Yeah it’s I think that design requirements even those that seem as 3 logical as the way you've described them open up a can of worms for people to find all kinds of 4 objections that prevent the harmonious and smooth construction of ADUs. So I think that 5 finding like additional loopholes for people to challenge you is exactly what's kept ADUs from 6 being developed in many places. So design requirements have been cited as an example of 7 how Santa Cruz accelerated the development of ADUs is by having by right if you adhere to 8 basically a playbook. 9 10 Chair Alcheck: Ok. Would you like to speak to the dissent? 11 12 Commissioner Gardias: Yes. So I just it wasn't clear, the intent was not clear to me. I didn't 13 understand where that three feet it was coming from. So for this reason because there was no 14 reason I just couldn't support it. 15 16 Chair Alcheck: Yeah, ok. The next time we do that maybe we'll put it up on a screen or 17 something so that it's really clear. That was a little difficult. Alright, moving on, I have 18 Commissioner Rosenblum; do you have an amendment? 19 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. MOTION #2 (TABLED) 1 2 Commissioner Rosenblum: Alright this is part two of the parking amendments. So language 3 wise don't know what the I'm not sure if this belongs in the ordinance so Chair you can dismiss 4 this if you choose, but I'd like to ask for the City to do a parking study of R-1 neighborhoods and 5 consider eliminating parking requirements or treating those as transit oriented same basically 6 no additional parking requirements for those with under 50 percent utilization using standard 7 methodology that underpinned our RPP studies for example. So studies taken at 9:00 a.m., 8 12:00, a series of peak utilization under 50 percent equals no additional parking requirement. 9 10 Chair Alcheck: Ok, This came up in our discussion. I just want to sort of ask a quick question to 11 staff. I'm not sure this is sort of an appropriate edit to the ordinance language itself, but I do 12 want… would be possible to come back to this maybe as a Motion and that if we supported it as 13 a Commission it could be explored? I mean how would that work? 14 15 Mr. Lait: Yeah, I think as you were setting up the conversation earlier in the evening I think this 16 is one of the ones that would be transmitted to the City Council as an interest of the 17 Commission that we would include in the staff report and say that there is this expressed 18 interest and asking the Council to endorse our exploring that further with the Commission. 19 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. Commissioner Rosenblum: I’m satisfied with that. 1 2 Chair Alcheck: Ok, so why don't when at the tail end of this you can make that a Motion. You 3 don’t even have to repeat yourself. I think we're all there and then we can vote on it and see if 4 there's consensus on having that be strongly communicated to City Council. Ok, Commissioner 5 Gardias do you have an amendment? 6 7 Commissioner Gardias: Yes I think that, let me think about it. So it would be in the same spirit 8 that we can come back to the Council with a with farther clarification, right? Is this how this 9 would work? 10 11 Chair Alcheck: I’m sorry. Do you want to do something similar to Commissioner Rosenblum? 12 13 Commissioner Gardias: That’s right. 14 15 Chair Alcheck: Alright, so what I would like to do is after we make after we finish this mode as 16 opposed to amending the language we can make a Motion on something that you'd like to 17 encourage City Council to allow us to do or to explore. Would you be comfortable coming back 18 to it as its own Motion? Like we're going to do the Motion that he just discussed? 19 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. Commissioner Gardias: Say it again (interrupted) 1 2 Chair Alcheck: Ok, so just to be clear right now if you would like to amend the language of the… 3 currently we have a Motion on the table that has some amended amendments that relates this 4 draft. If you want to amend this draft as it is then I'd love for you to make that amendment at 5 this time. But if what you would like to do is make a suggestion on something that you'd like to 6 explore and you would like City Council to hear that and give us the opportunity to explore that 7 or to encourage staff to then explore it then I would prefer we do it the way that we're going to 8 deal with Commissioner Rosenblum’s request which is at the conclusion of this initial 9 amendment, Motion that we’re on the floor on we will, I will accept Motions and you can 10 propose a Motion where you can assert a request to investigate or to pursue some line of 11 analysis if you’d like. And then we can vote on it as a group to see if there is consensus for that 12 and then staff will communicate that we have really made a request that we pursue something 13 to City Council. 14 15 Commissioner Gardias: Yeah, I see a little bit differently so the, but it could be put it the way 16 that you were proposing with some caveat because I don't just don't want to leave it open. I 17 want to make it clear to the Council that I or eventually some others will accept this Motion 18 that concerns about number of the items that are not quality items with this. And Council 19 would allow us to upend or revise consequently this regulation. 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. 1 Chair Alcheck: Ok, well let me say this, I think that if there are (interrupted) 2 3 Commissioner Gardias: So it's not, it would not be a research item. It would be (interrupted) 4 5 Chair Alcheck: No. 6 7 Commissioner Gardias: Would be eventual revision to this regulation. 8 9 Chair Alcheck: What I would in response to that I would suggest that if you have if there are 10 specific… I think at issue here is that if you had a specific suggestion for a language change then 11 you could propose it as an amendment at this time. What I'm gathering from your comment is 12 that you don't necessarily have specific language, but you have concerns about some of the 13 language and you wish you had more time to explore specific language. That is more difficult. 14 15 Commissioner Gardias: Yes so pretty much my Motion would be like this that there would be a 16 subsequent revision to this regulation that would include the following would be eventually 17 including the following items and then we can just have the list of the items that would be 18 subject of this research. And then I can just (interrupted) 19 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. Chair Alcheck: Ok I have a suggestion. At the conclusion of this initial Motion process what I 1 would suggest you do is start create a Motion requesting an opportunity within a certain 2 timeframe to review the ordinance and improve upon it. So like we have a process now in 3 place where we have an annual review of our… no, the one where we go through all the 4 language. Yeah. And maybe as Assistant Attorney Cara Silver has mentioned earlier this is a 5 sort of a rushed process and so maybe in… there will be an… maybe your Motion could suggest 6 that in not the law in not in some certain time frame we could re-approach this and see if we 7 can improve upon some of the vague issues or conflicts that might exist as a result of some of 8 the nuance that hasn't even really come to light yet. 9 10 Commissioner Gardias: So let me ask a question, right? What's the timeframe of just this going 11 to the Council? Can we, will we have time to do subsequent research and then provide the 12 revision before the Council takes up on it? Or we already know that this would not be a 13 chance? 14 15 Mr. Lait: I suppose it depends on what you're asking us to research. Depending on what you’re 16 asking for (interrupted) 17 18 Commissioner Gardias: Exactly. So I think that from my perspective research would be very 19 light, but I know that from your perspective it may be heavier. So but it just say that it's going 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. to take a [unintelligible] several items, right? Like Commissioner Rosenblum and I may have 1 some of them. Is there a possibility that we can just return to those items within two months 2 say and then it would we would still have time just to go back to Council with those improved 3 items. So before the Council takes up on it first time. 4 5 Mr. Lait: Ok, well then I would engage the Chair on the timing on that. I mean I think we’re 6 interested in wanting to implement state law, but it as I'm looking at my notes of the concerns 7 that you had expressed you had interest in the compliance consideration, the public transit 8 definition, researching the minimum requirements for ADUs of 250, you had some privacy 9 related concerns which I think we could easily address, and more recently you had the item 10 about the doors, the doorways facing the street. I believe all of those we can certainly review 11 and include in a staff report that's going to the Council with your or if there’s a support on the 12 Commission of interest of these things then we can include that as part of the discussion and 13 the ordinance if there was support for that. For example, if the Commission thought that a 250 14 minimum was desirable and we would just make sure that it's permissible we could include that 15 in the ordinance. I think we can address all the ones that you're talking about. The green, the 16 public transit one I think it's maybe getting modified a little bit here as I'm understanding the 17 conversation going on, but I of the items that you've addressed if there is Commission support I 18 think we can incorporate that and still stay on the schedule that we have placed and planned. 19 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. Commissioner Gardias: That would work with me. So pretty much the Motion that I would 1 propose (interrupted) 2 3 Chair Alcheck: Oh hold on. 4 5 Commissioner Gardias: [Unintelligible] 6 7 Chair Alcheck: What I’d like to do, but here’s what I’m trying to do. I’m trying to get you to 8 propose that Motion after we deal with the Motion on the floor because the Motion on the 9 floor is on the floor and this would my interpretation of that Motion is that there is a consensus 10 to move forward the draft ordinance as it is as amended. And I'd like to if you would like to 11 make a Substitute Motion at this time you can, but what I'm suggesting is I think you'll have 12 potentially more success if you allow this Motion to complete its process and then make a 13 second Motion which there will be a process for other Motions to explore other items. But if 14 you would like to make a Substitute Motion at this time you can attempt to do that, but there is 15 a Motion on the table to move this forward as amended and unless there is a Substitute Motion 16 I'm going to allow that Motion to have a vote. 17 18 Commissioner Gardias: That’s fine. So I will go with for your proposal I propose my Motion 19 once this is considered. 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. 1 Chair Alcheck: Ok, great. I have lights. Commissioner Tanaka do you have an amendment? 2 3 FRIENDLY AMENDMENT #3 4 5 Commissioner Tanaka: Yeah, so I’d like to propose a Friendly Amendment, something I talked 6 about earlier which is there are some places which either can't have, can't meet the parking 7 permit or doesn't want to for whatever reason and in exchange for that it will cost the City 8 roughly about $65,000 or so to build a new parking spot. And if the homeowner wishes to 9 contribute or something on that order I think that's probably one way to actually allow ADUs 10 and still help with the parking requirements. So I’d like to make that as a Friendly Amendment. 11 12 Chair Alcheck: Ok, I imagine you're going to continue? 13 14 FRIENDLY AMENDMENT #3 REJECTED 15 16 Vice-Chair Waldfogel: I'm really liking this process. 17 18 Chair Alcheck: Ok, so can we get a second of this? Does everybody understand? Would you 19 mind just restating a little bit what you meant? 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. 1 UNFRIENDLY AMENDMENT #4 2 3 Commissioner Tanaka: Ok, so there are some properties that can't or don't want to meet the 4 parking requirement for the ADU. And so that's going to wipe out a bunch of possible ADUs. So 5 in order to actually enable ADUs in these kind of situations what I propose is allowing an in lieu 6 fee. So it costs the City roughly $65,000 or so to actually build parking spots. And so by paying 7 this in lieu fee essentially or maybe it goes to some sort of parking mitigation program or 8 something in that order, but it basically used money to make up for the fact that you can't park, 9 but it has to be enough money to actually truly make up for it. So I think it's something on the 10 order of $65,000 or on that some sort of inflation indexed fee, but I think if we don't do that 11 there are going to be a lot of properties that are going to be ADU eliminated. 12 13 Chair Alcheck: Ok, let me just ask a clarifying question. So the idea here is one of the 14 requirements for some ADUs may be that there be a parking on the on the premises and if an if 15 an individual wanted to develop and ADU, but not have to provide that parking then they could 16 still be eligible if they paid a fee which would exempt them. It's essentially an exemption 17 opportunity. You could exempt yourself from the parking requirement if it was applicable by 18 paying some fee. 19 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. Commissioner Tanaka: Yeah, correct. Basically it's taking care of the problem, the parking 1 problem, with money because the money could build a new parking spot. 2 3 Chair Alcheck: Ok. 4 5 Commissioner Tanaka: Or it could pay for a parking mitigation program or it could whatever, 6 something like that. 7 8 Chair Alcheck: Ok. I need a second. 9 10 SECOND 11 12 Commissioner Fine: So that’ll have my second. I would just ask staff to explore where that 13 money would go whether it’s the parking assessment district or somewhere else. 14 15 Chair Alcheck: Ok, so this is a little vague because we don't have a number. So it’s not going to 16 be easy to create language, but what I would suggest and I think we can proceed with it. I’m 17 not entirely sure how this would be incorporated, but essentially the amendment is to include 18 language that would allow an individual to be eligible for not having a parking requirement if 19 they pay a fee that would be somehow related to the cost of creating a parking space 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. elsewhere in the City. That's as specific as I think this can be. Ok, we have a second. Would, do 1 either of you like to speak to this Friendly Amendment [note-Unfriendly]? 2 3 Commissioner Tanaka: Well I think it's kind of like this is like conservation of parking in the 4 universe, right? So we have to have parking somewhere and you can use money to transport 5 where that parking is. It still solves a problem, allows ADUs, and doesn't… you know I think the 6 problem with totally getting rid of the parking requirement is that it may push it somewhere 7 else, but if you actually get, if you actually, if the homeowner actually pays money to build new 8 parking spot then parking is created somewhere else or some form of parking is created 9 somewhere else and so it allows ADUs to happen that couldn’t normally happen. 10 11 Chair Alcheck: Ok, would you like to speak? Ok. Alright (interrupted) 12 13 Ms. Silver: So through the Chair? Before you take a vote on this I'm trying to understand 14 whether you're thinking that staff will come back with specific language to implement this or is 15 this part of a Phase 2 implementation? 16 17 Chair Alcheck: I think right now you have there are elements of this ordinance that exempt 18 particular parcels from parking requirements. 19 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. Ms. Silver: Right. 1 2 Chair Alcheck: I think what he is suggesting I think and correct me if I’m wrong, I think 3 Commissioner Tanaka is suggesting is that there could be another option for exemption which 4 would be a fee. And what I would suggest is that Council in the interim of time between today 5 and the time it goes to City Council suggest that the Commission supported a amendment to 6 this ordinance that reflected a fee that related to the development of a parking space 7 somewhere in town that would allow a parcel to also be eligible for the exemption of the 8 parking requirement. I don't want us to get into the process of figuring out that fee and I also 9 don't want to delay this. I think that [unintelligible] I think you could incorporate that language 10 or at least communicate (interrupted) 11 12 Ms. Silver: Right. 13 14 Chair Alcheck: That that language be included. 15 16 Ms. Silver: Right. So what we could do is we could include an exemption for any Council 17 adopted (interrupted) 18 19 Chair Alcheck: Yes. 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. 1 Ms. Silver: Fee program and then that fee program would be developed later. 2 3 Chair Alcheck: Are you, is that amenable to you? 4 5 Ms. Silver: Or in parallel. 6 7 Commissioner Tanaka: I'm fine with that. I mean we can know how much parking costs in Palo 8 Alto. It’s around $65,000. We [just the fee in mine]. We're not talking about someone pays a 9 dollar and you're done. We're talking about a fee that actually covers the cost of creating 10 parking. 11 12 VOTE 13 14 Chair Alcheck: Ok. I’d like to put this to a vote. All those in favor of Commissioner Tanaka’s 15 Unfriendly Amendment please raise your and say aye. That’s three yes. All those opposed? 16 That is three. So that fails. Ok, I'm going to continue. Commissioner Fine do you have a 17 amendment? 18 19 UNFRIENDLY AMENDMENT #4 FAILED (3-3) 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. 1 UNFRIENDLY AMENDMENT #5 2 3 Commissioner Fine: Yeah. I'd like to propose that in RPP district we eliminate the off street 4 parking requirement. 5 6 SECOND 7 8 Commissioner Rosenblum: I second that. 9 10 Chair Alcheck: Ok, would you guys like to speak to your amendment? 11 12 Commissioner Fine: Sure. So part of the point of having an off street parking requirement is to 13 mitigate the impact of parking when you create a second unit, but that parking supply is already 14 controlled in an RPP district. So if you do create an ADU that unit may get a permit that already 15 exists for the lot or for the household. It’s just being split among two households now and we 16 already have controls upon it. Furthermore, it's a good incentive if the permits are already used 17 to force people onto other modes of transportation: car, sorry, sorry, bike, ped, walking, transit, 18 etcetera. 19 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. Chair Alcheck: Would you like to speak to your second? 1 2 Commissioner Rosenblum: Nothing to add. 3 4 Chair Alcheck: Just for the purposes of clarification obviously we don't have a real time map 5 here, but we would, you would be… it would be helpful in my opinion if we were going to vote 6 on this to be able to identify which areas of town were in an RPP and essentially this bubble 7 would grow and we would understand the exemption. But because we can't do that would you 8 mind staff listing the areas of town that are currently under an RPP program so that as we vote 9 on this we are just aware of it. And then if you find if there is any in that particular list that you 10 are not including let me know. 11 12 Commissioner Fine: So the only ones I can think of there’s Downtown, there’s College Terrace, 13 Evergreen’s up on the table, Crescent Park has their overnight, but I don't think that really 14 counts for this. 15 16 Chair Alcheck: Ok, so we're talking about two. 17 18 Commissioner Fine: Yes, currently, but I think it should (interrupted) 19 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. Chair Alcheck: Apply. 1 2 Commissioner Fine: Be applied to future RPPs. 3 4 Chair Alcheck: Ok. All those in favor? Clarifying question? Please. 5 6 Commissioner Tanaka: Ok, so just be clear so are you saying for the RPP that… let’s say they 7 don't have the onsite parking that they can use one of the RPP, one of the permits for the ADU. 8 Is that what you’re saying? 9 10 Commissioner Fine: Well they could choose to do that or they could say whoever's living in the 11 ADU you don't get a parking permit, figure something else out. 12 13 Commissioner Tanaka: I see. And the logic being that if they didn't provide the parking in their 14 RPP and they tried parking on the street (interrupted) 15 16 Commissioner Fine: They’re not parking in your, that neighborhood. 17 18 Commissioner Tanaka: Ok, that makes sense. 19 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. VOTE 1 2 Chair Alcheck: This would be for a carless lifestyle. Ok, alright. All those in favor of 3 Commissioner Fine’s amendment please raise your hand and say aye. That is four. All those 4 opposed? Two. 5 6 UNFRIENDLY AMENDMENT #5 PASSED (4-2) 7 8 Vice-Chair Waldfogel: I need more time to think about that one, but… 9 10 Chair Alcheck: Ok, that's fine. Would you like to speak to your dissent? 11 12 Vice-Chair Waldfogel: I just need more time to process that one because I'm trying to grasp 13 what situations in what situations that would work and what situations that would create new 14 burdens and what situations that would create new benefits and I just don't have enough time 15 to process that tonight. 16 17 Chair Alcheck: Ok, thank you. Would you like to speak your dissent? 18 19 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. Commissioner Gardias: Yes, I think that I have the same feeling that pretty much this Motion 1 [Note-Unfriendly Amendment] may be justifiable, but I think that due to the lack of 2 understanding of the impact as well as the other Motions [Note-Amendments?] that we 3 processed that we may… I think that this is pretty much too early to make the justifiable or 4 scientific decision without knowing the background and the impact that it would create. 5 6 Chair Alcheck: Ok, thank you. Alright we're going to do… Yeah. We’re going to do I have 7 Commissioner Rosenblum then Waldfogel and Tanaka. So Commissioner Rosenblum do you 8 have an amendment. 9 10 UNFRIENDLY AMENDMENT #6 11 12 Commissioner Rosenblum: Yeah, increase the rental restriction to 60 days. 13 14 SECOND 15 16 Chair Alcheck: Ok. Do we have a second? I will second that. Would you like to speak to it? 17 18 Commissioner Rosenblum: Yeah. There were a couple of residents who brought up their 19 concern with encouraging a more transit neighborhood. Although I originally thought 30 days 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. was sufficient I don't see a downside to 60 days and it will help some residents have some 1 peace of mind. 2 3 Chair Alcheck: Ok, I’ll speak to the second. I would have supported any increase of the 30 day 4 minimum including up to a year for a lease that could then turn into a month a month. So this 5 is a step in the right direction. 6 7 VOTE 8 9 Chair Alcheck: Let's put it to a vote. All Commissioners in favor increasing the minimum rental 10 period from 30 to 60 days please raise your hand and say aye. Oh, alright. That is six in favor. 11 Ok. Commissioner Waldfogel [Note-Vice-Chair] do you have an amendment? 12 13 UNFRIENDLY AMENDMENT #6 PASSED (6-0) 14 15 UNFRIENDLY AMENDMENT #7 16 17 Vice-Chair Waldfogel: Yes I do and this speaks to the tree issue that several commenters raised 18 and I spoke with Assistant Director Lait about this prior to the meeting and he recommended 19 adding some specific language in oh, what is it? It’s on Page 142 of the packet. It adds a clause 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. line under the street access clause and it’s in the additional requirements for all ADUs. And it 1 says an ADU shall not result in the removal of any protected tree as defined in Section 8.10.020. 2 3 Chair Alcheck: I suspect that you support your own amendment as a Friendly Amendment, but I 4 will not accept it as a Friendly Amendment. I generally oppose redundancy. I believe these 5 trees are protected already in our code so repeating it is unnecessary. So I will ask if there is a 6 second for this? Go ahead. 7 8 Commissioner Fine: Is this already supported in the code? I know I kind of asked this question 9 earlier, but… 10 11 Mr. Lait: Well so the code has a process for seeking a removal. This amendment would prohibit 12 using that process. 13 14 Chair Alcheck: I want to provide some clarification here. When you say removal you mean 15 removal of protected tree? 16 17 Mr. Lait: Yes. 18 19 Chair Alcheck: Can you explain that process? 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. 1 Mr. Lait: Yeah. There is a I mean generally there’s a [unintelligible] 2 3 Woman: So basically generally the way the code is written is that for a protected tree, basically 4 for a single family properties if you want to remove a protected tree you have to request a tree 5 removal permit and that is processed by our Public Works Department. And protected trees 6 would be trees of a certain size, oaks, and redwoods. Oaks, redwoods. Right. 7 8 Chair Alcheck: Actually correct me if I’m wrong, I don't believe it applies to trees of a certain 9 size. I think it applies to oaks, redwoods, and designated trees. I don't believe there is a size 10 requirement to our… 11 12 Mr. Lait: Yeah, I actually happen to have the standard here. Any tree of the species Coastal Live 13 Oak or Valley Oak which is 11.5 inches in diameter (interrupted) 14 15 Chair Alcheck: Got it. 16 17 Mr. Lait: 36 inches in circumference and it goes on to talk about redwoods with their diameter. 18 And then there’s heritage trees designated by the Council. 19 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. Chair Alcheck: Sorry, I meant other species; so oaks and redwoods of a certain size, but not size 1 requirements for all trees. 2 3 Commissioner Fine: So just a question. I thought the Vice-Chair’s proposed amendment here 4 was to ensure that ADUs have to play by the normal rules for tree protection. Am I incorrect in 5 that? 6 7 Vice-Chair Waldfogel: Well let's look for, I guess I'm looking for some clarification on this. 8 Because with the (interrupted) 9 10 Mr. Lait: Right. So this, this is something that… right. So this is something this is a question that 11 came up in response to I think some of the comments that we received about the item. And 12 I've tried to reach out to our Urban Forestry Department to understand clearly how we process 13 these particular requests. In my read of the regulations there was I had some concern that 14 some trees may not be protected that could be removed in order to accommodate an ADU. So 15 at a minimum to answer Commissioner Fine’s comment ADUs would be subject to the same 16 standards that are in place today. A question would be would you want to heighten that 17 standard to ensure that these protected trees are not lost due to the construction of an ADU? 18 19 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. Chair Alcheck: Ok, so for clarity it would essentially would be making it a little bit more difficult 1 to place an ADU if there was a protected tree because the removal process wouldn’t apply. 2 That is the suggestion. Is that what your intention was? 3 4 Vice-Chair Waldfogel: Yes. 5 6 UNFRIENDLY AMENDMENT #7 FAILED 7 8 Chair Alcheck: Ok. So I need a second. Ok. We don't have a second. Commissioner Tanaka so 9 you have an amendment? Does anybody else have an amendment of this Motion that's 10 currently on the table? Awesome. Ok. Did you just hit the button? 11 12 Commissioner Fine: Just a quick question, a query for the Commission up here. Does everyone 13 feel we've dealt with conversions and bringing ADUs into compliance? Have we dealt with that 14 sufficiently? 15 16 Chair Alcheck: Can you be a little bit more specific what you're asking? 17 18 Commissioner Fine: So part of our directive, our directive was two part here from the Council 19 memo. One was figure out how to make, how to enable the construction of ADUs, and two, 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. how to bring them into compliance. I just feel throughout this whole process it seems like 1 we're getting near a vote to pass this on the Council we really have skirted around that a little 2 bit and not quite dealt with it. And we all have lots of friends and family here in Palo Alto who 3 have illegal ADUs, so just a question. 4 5 Chair Alcheck: Yeah, no so this goes back to the process. When we began this process it was 6 sort of directed by a City Council memo. This agendized item is not the result of staff's work in 7 response to our last meeting and sort of following up on that. This particular agendized item is 8 in response to the law. In theory the topics and concerns and ideas that we came up with in 9 our last study session theoretically would have come back to us, but not tonight, maybe with a 10 little bit more staff work. And so my hope is that City Council will not get the impression that 11 we have somehow skirted their directive because I don't know that staff has really come back 12 to us with some of the ideas that we discussed at the last two meetings about compliance and 13 grandfathering. That said, if you have been of how we can incorporate it I, ok, alright, so you 14 don't. I'm just acknowledging that you're hand signal there. 15 16 Alright, I would like to put the Motion put forth by Commissioner Waldfogel [note-Vice-Chair] 17 seconded by myself as amended, sorry. Go ahead. 18 19 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. Mr. Lait: One question, a clarification point on the Commissioner Rosenblum’s comment about 1 the transit, the public transit. Are we not including buses at all? Where just folks (interrupted) 2 3 Chair Alcheck: What he amended was the radius of the Cal. of the train. 4 5 Mr. Lait: Ok. 6 7 Chair Alcheck: The buses would remain as they are currently (interrupted) 8 9 Mr. Lait: 45. And would this be intersections of bus lines of bus stops or at routes? The route is 10 all of El Camino. 11 12 Commissioner Rosenblum: Stations. 13 14 Mr. Lait: Bus stops. 15 16 Commissioner Rosenblum: So I my amendment was only as pertains a radius around three 17 stations. 18 19 Mr. Lait: Ok. Beyond the stations and then focusing in on the… 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. 1 Commissioner Rosenblum: We’re not (interrupted) 2 3 Chair Alcheck: He didn't amend the language related to the bus stops. 4 5 Mr. Lait: Right, so I guess I'm seeking clarification from the Commission then about do we want 6 it to be along a fixed route like El Camino or do we want to be at bus stops? Because 7 (interrupted) 8 9 Chair Alcheck: Let me ask you for clarification. What is currently in your draft? 10 11 Mr. Lait: Right now it is well, the way it's drafted it's some variation of state law which isn't 12 quite what we wanted to do. We wanted to align it with A.B. 743 which would have allowed 13 fixed routes of buses that have a 15 minute headway in peak times, morning and afternoon or 14 evening. 15 16 Chair Alcheck: Ok. Alright, thank you for bringing this up. What I'm going to ask is if there is a 17 Commissioner who would like to make a specific suggestion on how we should treat this 18 language light it up. Commissioner Fine. 19 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. Commissioner Fine: I think it should be based on station stops. There's no effect. If you're 1 living at Loma Verde and Alma it doesn't matter that the Caltrain line is right there, right? In 2 terms of affecting your ADU which should (interrupted) 3 4 Chair Alcheck: Well he’s actually talking about bus travel. 5 6 Commissioner Fine: Bus, but for bus it’s the same, right? It’s actually not the fixed route and I 7 believe Commissioner Rosenblum’s suggestion was simply changing the train radius from 0.5 to 8 0.75. 9 10 Chair Alcheck: Ok, so I can accept your comment as a suggestion that the language in the in this 11 amendment in this ordinance be amended to reflect that the radiuses for the bus transit lines 12 be half a mile from each bus stop? 13 14 UNFRIENDLY AMENDMENT #8 15 16 Commissioner Fine: Yes. 17 18 SECOND, VOTE 19 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. Chair Alcheck: Ok. And do we have a second? OK you’re the proposer. I need a second. And 1 do I have a second? Good. Ok, are there any questions or in need of clarification for this? Ok, 2 good. Let's put it to a vote. All Commissioners in favor of the proposed Unfriendly Amendment 3 please raise your hand and say I. That's four. All opposed? That’s two. Commissioners who 4 oppose would you like to speak your dissent? 5 6 UNFRIENDLY AMENDMENT #8 PASSED (4-2) 7 8 Commissioner Gardias: I can speak to it. So pretty much the reason why I vote against this that 9 while it may increase the number of the compliant units it would not preclude folks from having 10 a car. So I thought that this should be congruent with promoting the different lifestyle and 11 using the public transportation. 12 13 Chair Alcheck: Ok, thank you. I see no other lights of amendments. I’ll ask before we move. Is 14 there any other clarifications you wish to receive from us Planning staff? Ok, I have a light. 15 Commissioner Fine. 16 17 Commissioner Fine: One question. I'm just actually thinking about your comment there. Is 18 there any standard incentive the City measures for a household without cars where we could 19 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. say if you can prove that you’re household without cars you may not have to build the 1 additional parking spot? Is there anything we can do around that? 2 3 Ms. Silver: Well legally you can. We don't currently have a standard in place if that's your 4 question. 5 6 Commissioner Fine: Ok, I'm not going to make an amendment here, but there is something to 7 be said for households that do not have cars. There may be an opportunity here to provide 8 them a different or a special exemption here on the parking requirement. 9 10 VOTE 11 12 Chair Alcheck: Ok, at this time I'm going to call for a vote on the Motion as amended numerous 13 times tonight. All Commissioners in favor of the Motion, the Motion as amended please raise 14 your hand and say aye. Aye. Ok that is five Commissioners in support. And all Commissioners 15 opposed? One. Would you like to speak your opposition? 16 17 MOTION PASSED (5-1) 18 19 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. Commissioner Gardias: Sure. So the reason that I withheld my vote and voted against and why 1 I’m opposing this because of the numerous reasons. So compliance with the state law as staff 2 proposed this originally it was the right approach. A removal of the minimum requirement is 3 something that it may be the right move, but not at this time because of this that we didn't 4 have that public that would be able to engage with this change. And with this we may just end 5 up with a number of the surprise citizens. Some may be of course for it and some of them 6 attended this meeting, but some may be opposing this measure and for this reason we don't 7 have a good feeling about this what this what change it would this proposed regulation would 8 create and we would just set up on our constituents by surprise by just not being informative 9 about this what this may was this regulation may bring to the neighborhoods. 10 11 Chair Alcheck: Ok, thank you. Alright, at this time I'm going to open the floor up for anyone 12 who would like to make a Motion on the topic of… say that again? No, no, no. I want to open 13 the floor up if you’d like to make a Motion. For example, Commissioner Rosenblum suggested 14 earlier he’d like make a Motion about potentially requesting City Council to allow Planning to 15 explore some parking utilizations study. I’m opening the floor up to anybody who would like to 16 make a Motion at this time. Commissioner Rosenblum. 17 18 MOTION #2 19 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. Commissioner Rosenblum: Yeah I’ll repeat my earlier Motion which is a recommendation that 1 staff do a parking study of neighborhood parking utilization and for those with below 50 2 percent utilization consider waiving the parking requirement for ADUs. 3 4 Chair Alcheck: Can I ask for a point of clarification? Could those to be very specific would we 5 need a parking utilization study on RPP districts if we've already exempted them? 6 7 Commissioner Rosenblum: No. 8 9 Chair Alcheck: Ok. So this would be minus two neighborhoods, even less work because need 10 the parking utilization study in those neighborhoods. Ok, do we have a second for this Motion? 11 12 SECOND 13 14 Commissioner Gardias: I will second. 15 16 Chair Alcheck: Great. Would either of you like to speak to your Motion very concisely? 17 18 Commissioner Rosenblum: Yeah. So this is the second part I think that there's two reasons to 19 have to get rid of the car requirement. One is car light lifestyle which is around dense 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. commercial areas and transit areas. And the second is in places where there's simply not an 1 issue where there's plentiful parking because we're trying to encourage the development of 2 these units. 3 4 Commissioner Gardias: I will only add that when I was reading some of the literature that was 5 provided to us before the meeting one of the key elements in the incentivizing of ADUs was the 6 removal of the car parking requirement. So for this reason and that could be our next step and 7 for this reason this research may be very valuable. Thank you. 8 9 Chair Alcheck: Commissioner Tanaka do you have a question? 10 11 Commissioner Tanaka: Sorry. So I’d like to make a Friendly Amendment. 12 13 Chair Alcheck: Please do. 14 15 UNFRIENDLY AMENDMENT #1 TO MOTION #2 16 17 Commissioner Tanaka: Ok. So a couple friendly amendments actually so and it’s the ones I 18 made before so these are, these are not new ones. So one would be that as part of the study 19 we also look at enabling underground parking in R-1 zones that don't count towards the FAR. 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. 1 Chair Alcheck: [Unintelligible] to include in this study process an exploration of underground 2 parking opportunities. 3 4 Commissioner Rosenblum: I'm just not sure the two things are related to each other and so I’m 5 not saying good idea or bad idea, I’m just not sure how these two things are actually… Yeah I 6 would treat it as an Unfriendly Amendment. 7 8 Chair Alcheck: Ok do we have a second of this Unfriendly Amendment? 9 10 Mr. Lait: Could I suggest? 11 12 Chair Alcheck: Yes, please. 13 14 Mr. Lait: That is seems like there may be a few items. 15 16 Chair Alcheck: Right. 17 18 Mr. Lait: And rather than do (interrupted) 19 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. Chair Alcheck: I agree. 1 2 Mr. Lait: A vote on that maybe this one goes on its own and then we can take this one up and I 3 think Commissioner Gardias had a couple. 4 5 Chair Alcheck: Yeah, that's a good idea. Why don’t, may we suggest that you rescind your 6 Unfriendly Amendment or if there's anything specific to this particular study then let's deal with 7 that and then if not why don’t we deal that Motion and you can lump all your study session 8 Motions into one. 9 10 UNFRIENDLY AMENDMENT #1 RESCINDED 11 12 FRIENDLY AMENDMENT #1 TO MOTION #2 13 14 Commissioner Tanaka: Ok, sounds good. The one thing I get the idea behind this, the only thing 15 that concerns me about it which is why I'm going to make another hopefully Friendly 16 Amendment this time is that parking changes, right? So and when you build the ADU as you 17 build it kind of like once for a while it’s not a change, but the parking in the area may change for 18 whatever reason and so while today may be the there’s no problem in that neighborhood that 19 this situation is that there might be one in the future. So to help make this thing more 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. palatable here's a Friendly Amendment for you. And it's one I've made before which is that the 1 homeowner could make a in lieu fee to pay for parking should there not be… if they couldn't 2 actually have parking spots on their lot or don't want it for whatever reason. So it’s the same 3 thing I did before. 4 5 FRIENDLY AMENDMENT #1 TO MOTION #2 REJECTED 6 7 Commissioner Rosenblum: I don't accept the logic of it for the simple reason that doesn't offset 8 anything in that neighborhood. So it shouldn't really eliminate the concerns those neighbors. I 9 thought you were going to say that should be subject to review every X years in order to 10 confirm there’s still not a parking problem which I would have accepted, but and but any rate 11 you could propose that as a separate thing around in lieu fees. I just don't think addresses this 12 particular thing so I don't accept it as part of this. 13 14 Chair Alcheck: Would you like me to ask for a second to that or would you like to withhold that 15 and do it as a separate Motion? Ok, alright. Let's vote on this Motion that’s on… you would like 16 to speak to this Motion? 17 18 Vice-Chair Waldfogel: Yes. 19 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. Chair Alcheck: Ok. Go ahead. 1 2 Vice-Chair Waldfogel: Yeah I think that this is a, it's an interesting idea, but I think it's a really, 3 really, really bad idea. The Council in instituting RPPs made it very clear that quality of life in 4 the neighborhoods was something that they were focused on and that the only districts where 5 they saw high parking utilization as acceptable was the neighborhoods near the Downtown 6 core. They made it very clear through that process that they wouldn't extend higher density 7 parking into other neighborhoods. And I think that we need a just a much broader discussion 8 about parking in neighborhoods about as I mentioned earlier this question of whether empty 9 streets are an amenity or whether they're an opportunity. I don't think we should jump to a 10 conclusion tonight on which they are. So I think this is a bad idea. 11 12 Chair Alcheck: Ok I'm going to just suggest that I think correct me if I’m wrong, I think 13 supporting this Motion is not necessarily opining on whether it's an opportunity or an amenity I 14 think it's simply asking us to be provided with the information in those neighborhoods so that 15 then at that point we could assess whether it would be an amenity or an opportunity. So with 16 that I'm going to ask for a vote on this Motion for a study of parking utilization in all the 17 neighborhoods except the two RPP neighborhoods we've already exempted. 18 19 Commissioner Tanaka: So what is the Motion exactly? 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. 1 Chair Alcheck: Go [unintelligible] 2 3 Mr. Lait: Can I restate it because I actually have the [unintelligible] here. 4 5 Chair Alcheck: Yeah, go ahead. 6 7 Mr. Lait: Ok, so this will help ensure that I've got it right. Ask the City Council to direct staff to 8 prepare a parking study of residential neighborhoods to assess peak utilization and extend the 9 no parking requirement for ADUs on those blocks with a street parking peak utilization under 10 50 percent not including the two existing RPP neighborhoods and presumably any future RPP 11 neighborhoods. 12 13 Commissioner Rosenblum: Yeah. I would add the word consider. 14 15 Mr. Lait: Consider. Thank you. 16 17 Commissioner Rosenblum: It's a study for them to consider adding that. 18 19 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. Commissioner Tanaka: So just to be clear so it's not actually saying we will… it’s a study to see 1 whether it's feasible not a ok we'll get rid of the parking requirement. Even for lightly utilized 2 neighborhoods. 3 4 Commissioner Rosenblum: That's correct, but the intent in making this Motion is to say that I 5 would be in favor of such an act. And again to answer Commissioner Waldfogel [note-Vice-6 Chair] it is prioritizing people above empty parking spaces. So there is an explicit value 7 judgement that you're making and more particularly we're saying there are many 8 neighborhoods where parking is simply not a major issue, but housing is an issue throughout 9 the City. And so that's the that is the value judgment that we're making, but the Motion is to 10 just make a study. But the value inherent in that Motion is to say it is to try to make 11 construction of ADU more palatable in places where parking is not a primary issue. 12 13 Chair Alcheck: Ok Commissioner Waldfogel [note-Vice-Chair] last comment. 14 15 Vice-Chair Waldfogel: I'll decline. There's no point saying in saying any more about that. I 16 mean I think that this notion of people versus people over cars is a really offensive way to 17 describe the quality of life versus housing question which is a urgent issue that we need to 18 resolve, but this is not the time or place to put a finger on the scale. 19 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. VOTE 1 2 Chair Alcheck: Ok so at this time I would like to call vote on this Motion. All Commissioners in 3 favor of this Motion as articulated by staff please raise your hand and say aye. I have four. All 4 those opposed. I have two. Would those who oppose the Motion care to discuss it further? 5 6 MOTION #2 PASSED (4-2) 7 8 Commissioner Tanaka: Yeah, so in general I actually I think what Commissioner Rosenblum was 9 trying to do makes sense. The only issue I have is just that parking changes though. I mean it's 10 at one point in the neighborhood the parking may be great and then a couple years later it's 11 terrible and then a bunch of ADUs get built that don’t have parking. And people are like 12 [unintelligible] what happened there. So and I thought well it’s just a study it’s probably ok, but 13 then I thought well even if it study says this neighborhood is ok right now it may not be ok later. 14 So I that's why I didn’t support it, but I understand what you’re trying to do and I think that's 15 admirable. 16 17 Chair Alcheck: I see Commissioner Rosenblum’s light. Are you proposing? Ok. Alright do we 18 have any other Motions? Commissioner Tanaka. Commissioner Gardias [unintelligible]. 19 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. MOTION #3 1 2 Commissioner Tanaka: I'm going to bring it up for the third time now. So which is I really think 3 that residential underground parking needs to be revisited and it should not count towards 4 gross FAR. And so my Motion is that the Commission looks at that and maybe some future date 5 with staff's research and if we understand the pros and cons and figures out how to enable this 6 because I think without I think this is the one solution that will truly enable ADUs is 7 underground parking. And so I think we should fix this. I think there’s technology out there 8 today that enables it to happen without massive ramps or aesthetic issues. And so I'm hoping 9 that someone else will second it and the Commission will vote for it and make it happen. 10 11 Chair Alcheck: I want to ask quick point of clarification because it's not entirely clear to me 12 whether we can simply Motion and direct staff to do certain work in excess of one hour. So 13 would you be willing to revise your Motion to request that City Council direct staff to provide us 14 with, I mean there is a distinction there. I mean correct me from wrong? 15 16 Mr. Lait: Yeah, I that’s kind of what I thought actually was being suggested is the same notion 17 that we had here before which was requesting the Council consider directing staff to… that's? 18 19 Chair Alcheck: Right. 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. 1 Mr. Lait: Right. That's the… 2 3 Chair Alcheck: I just wanted to make sure that’s how you read it. Because what will happen is I 4 believe that this (interrupted) 5 6 Mr. Lait: This will go (interrupted) 7 8 Chair Alcheck: You will move it to Council with these Motions asking for these requests 9 essentially and if they approve that Motion then theoretically we would be able to explore 10 these topics. 11 12 Mr. Lait: That’s right. We’ll advance the ordinance with the changes and in addition to the 13 ordinance the Commission had these other interests that they're asking that Council consider. 14 15 SECOND 16 17 Chair Alcheck: Are you comfortable with that Commissioner Tanaka? Ok. Do we have a 18 second? I will second that Motion. Ok, do you need to speak to your Motion? 19 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. Vice-Chair Waldfogel: Is this the agendized item? I mean are we moving outside of our agenda 1 scope if we consider this? 2 3 Ms. Silver: So the earlier clarification was that this was in the context of ADUs and as I heard the 4 current request it was in an effort to increase possibly ADU production so I think that if that is 5 the premise of the Motion that it is within the ambit. 6 7 VOTE 8 9 Chair Alcheck: Ok, so for the purposes of determining consensus all those in favor of this 10 Motion please raise your hand and say aye. That is five. All those opposed. Ok. [Unintelligible] 11 12 MOTION #3 PASSED (5-1) 13 14 Commissioner Gardias: And I will provide explanation why not, right? So I mean it's clear 15 winner on the commercial site. It's a loser on the residential site. So for this reason I think 16 that... 17 18 Commissioner Tanaka: [Unintelligible]. 19 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. Commissioner Gardias: Ok I understand. So that’s what I’m saying (interrupted) 1 2 Chair Alcheck: I’m comfortable with that explanation. 3 4 Commissioner Gardias: I pretty much know the outcome that it's going to be too costly and it 5 would not be adopted so for this reason I vote no. 6 7 Chair Alcheck: Ok, no thank you. Ok I have one light left. Do you have a Motion that you'd like 8 to make Commissioner Gardias? 9 10 Commissioner Gardias: Yes I do. 11 12 Chair Alcheck: Ok, what I would like to do is make your Motion and then if you get a second. I 13 will let you speak to your Motion. Go ahead. 14 15 MOTION #4 16 17 Commissioner Gardias: So my Motion is to empower staff to study and research and provide 18 resolution that would revise the adopted ordinance before the City Council for this following 19 topics: for the privacy for entry ways for entrance ways, for the minimum size of the unit, for 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. compliance and enforcement of those ADUs, and also to research and provide the best 1 definition of the of the proximity of the public transportation. 2 3 Chair Alcheck: Commissioner Gardias in an effort to make your Motion more successful may I 4 suggest the same edit that we I’ve suggested for Commissioner Tanaka which that we request 5 that City Council direct us to explore those topics or to revisit those topics the same way you 6 just suggested it, but with the request that it be to City Council to direct us to do that. 7 8 Commissioner Gardias: So the why I propose it this way because I believe that staff can 9 research those items with the minimum time and then provide their revisions because those 10 are mainly technical revisions to the regulation without just being directed and just going 11 through excessive way. I think those are simple research items that (interrupted) 12 13 Chair Alcheck: I understand. 14 15 Commissioner Gardias: Addressed very easily. 16 17 Chair Alcheck: Ok, I just I want to highlight that I think what you've just proposed is a suggestion 18 that they come back to us. 19 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. Commissioner Gardias: No. I propose that they will be empowered to research and provide the 1 reasonable direction directly to the Council. 2 3 Chair Alcheck: Got it. Ok, so explore those topics that you listed in the interim between now 4 and the time this agendized item goes to the Council. 5 6 Commissioner Gardias: Exactly and provides yes (interrupted) 7 8 Chair Alcheck: Staff do you have a comment? 9 10 Mr. Lait: I think that some of these things I think we can pretty easily address even now, but I 11 just if I can have a minute of your time to explain the compliance issue we just need to look into 12 that. The concern there was the absentee owners and leasing out the primary and the ADUs. 13 That’s a legal consideration. 14 15 Chair Alcheck: Let me ask for a quick clarification. He gave you a specific list. Can you identify 16 the items that you are going that you anticipate exploring without even our direction? 17 18 Mr. Lait: Yes. 19 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. Chair Alcheck: So that the remainder of the… can you actually just list the remainder of the 1 items that we would need to vote on? 2 3 Mr. Lait: Where I would like guidance for the Commission is on the minimum ADU size of 250. 4 Because if we say yeah that could be done what's the Commission's recommendation on that? 5 And I think the other issues and then the only other issue would be does the Commission have 6 a concern about two front doors being visible from the public right away if one was set back say 7 20 feet? 8 9 Chair Alcheck: Ok, so what I'm understanding Commissioner Gardias is that out of the list of 10 topics you suggested they are going to do all of them except the two that he just listed without 11 further direction from us. So what I would like to suggest is that we vote on whether we want 12 to direct them to do the other those two specific items because the rest they're going to do 13 with the without our direction. Does it make sense? 14 15 Commissioner Gardias: Well why we why they cannot why you cannot to do all of them? 16 Because I think that the reason is that the same I would entranceway I would approach the 17 same way from the reasonability perspective. If you can prove it one way or the other, right, 18 you don't need to just give you directions. And I'm going to entrust your judgment to decide it 19 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. if this is the right language probably it can stay, but then if that can be waived because there is 1 lack of supporting reason you just wave it. 2 3 Chair Alcheck: Ok, let me make a suggestion. Would staff be willing to include that in their 4 assessment of language and so that we could simply vote on whether or not we wanted them 5 to explore the 250 minimum? 6 7 Mr. Lait: Yeah. 8 9 MOTION #4 FAILED 10 11 Chair Alcheck: Ok, alright. I believe the 250 minimum request is different than all of the rest 12 because it's essentially you're asking them to assess a development standard that doesn't 13 currently exist. And the implication of that development standard might result in a lot less ADU 14 development and so before they will proceed on that I think we're going to ask to have 15 Commission directed consensus. So is there a second for exploring for directing staff to explore 16 a minimum size requirement for ADUs? Just speak up. There’s a second. Going once? Ok. 17 That fails. Are there any other Motions? I see a light from Commissioner Rosenblum. 18 19 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. Commissioner Rosenblum: Yeah, sorry this is going to be in response to the previous which say 1 in that list something's not like the other. Some I support some I would have suggested taking 2 out, but since the Motions has failed I’ll hold my peace. 3 4 Chair Alcheck: Ok, just so we're about clarity here I don't know the precise number how many 5 items he listed, but all of them with the exception of the minimum lot size requirement are 6 going to be addressed by Planning staff in an… 7 8 Commissioner Rosenblum: In that case that the one that was objecting to in addition in your list 9 your last item was transportation definition of the radius around transportation hubs and we 10 already voted on that as a Commission and resolved I think the two issues, the radius of the 11 stations of the Caltrain stations and the definition of where you count from with bus routes. So 12 if that's in your list I think we already determined those so I would have extracted that from the 13 others. 14 15 Chair Alcheck: Ok. I don't really see the need of placing a vote on that item because we've 16 already dealt with it. So I'm going (interrupted) 17 18 Commissioner Gardias: So that's fine. So this leaves me with the three items with the 19 compliance and enforcement, with the privacy item and the entrance ways. 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. 1 Chair Alcheck: Which they will (interrupted) 2 3 MOTION #5 4 5 Commissioner Gardias: That’s the Motion that I'm proposing to entrust stuff to provide to 6 revisions to the adopted regulation. 7 8 SECOND 9 10 Chair Alcheck: Ok. Do have a second? 11 12 VOTE 13 14 Commissioner Rosenblum: Second. 15 16 Chair Alcheck: Ok, all those in favor of staff exploring those items in anticipation of the City 17 Council meeting and preparing language please say aye. That is six in favor. 18 19 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. Ok. Ok, I have no other lights. There are no other Motions. I'm going to close this agendized 1 item. Thank you for your participation all those audience members that are still here. 2 3 MOTION #5 PASSED (6-0) 4 5 Commission Action: Main motion: Vice-Chair Waldfogel motioned to approve the 6 recommendation that the City Council Adopt an Ordinance to Update the City's 7 Municipal Code Sections Regarding Accessory Dwelling Units (Second Dwelling Units) 8 for Compliance with Recent State Laws and Other Changes to Encourage 9 Construction of Accessory Dwelling Units. The motion was seconded by Chair 10 Alcheck. The following amendments were added: 11 12 AMENDMENTS 13 1. Modify the minimum lot sizes requirement to allow legally conforming lot sizes in the R1 14 and R1-subdistricts to be eligible for an accessory dwelling unit. Chair Alcheck and 15 Commissioner Rosenblum seconded the motion. The amendment passed 4-2. ( 16 Commissioner Gardias and Waldfogel against) 17 2. Allow parking in the R1 and R1-subdistricts to satisfy the accessory dwelling unit parking 18 requirement through subterranean parking. Motion failed due to a lack of a second. 19 3. Extend the parking exemption provision for the two CalTrain Stations in Palo Alto and 20 the San Antonio CalTrain station to .75 mile radius. Commissioner Rosenblum motioned 21 to accept and Chair Fine seconded the motion. The amendment passed 4-2( Vice-Chair 22 Waldfogel and Commissioner Gardias against) 23 4. Add additional development standard to Section 20 18.42 (a) 8'(v) For new or converted 24 detached accessory dwelling units, there shall be no windows, doors, mechanical 25 equipment, or venting or exhaust systems, located within six feet of a property line' 26 Vice-Chair Waldfogel motioned to accept and Chair Alcheck seconded the motion. The 27 amendment passed 4-2 (Commissioner Rosenblum and Commissioner Gardias against) 28 5. Establish a regulatory program that would allow accessory dwelling unit parking 29 requirements to be satisfied paying an in-lieu parking fee. Commissioner Tanaka 30 motioned to accept and Chair Fine seconded the motion. Amendment failed 3-3 31 6. Eliminate the parking requirement for those properties located within a Residential 32 Parking Program District. Commissioner Fine motioned to accept and Commissioner 33 Rosenblum seconded the motion. The amendment passed 4-2 (Vice-Chair Waldfogel 34 and Commissioner Gardias against) 35 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. 7. Modify 18.42.040 (a) 9 (ii) Short term rentals limitation from 30 to 60 days. 1 Commissioner Rosenblum motioned to accept and Chair Alcheck seconded the motion. 2 The amendment passed 6-0. 3 8. Modify 18.42.040 (a) 9 to add "(ix) An accessory dwelling unit shall not result in the 4 removal of any protected tree as defined in Section 8.10.020." Vice-Chair Waldfogel 5 motioned to accept; amendment fails due a lack of a second. 6 9. Modify the Public Transit definition for busses to be a .5 mile radius from bus stops 7 along a fixed route bus service with service intervals of 15 minutes or better during peak 8 commute hours. Chair Fine motioned to accept and Commissioner Rosenblum seconded 9 the motion. The amendment passed 4-2 (Vice-Chair Waldfogel and Commissioner 10 Gardias against) 11 The main motion with the above referenced amendments was passed 5-1 with Commissioner 12 Gardias against. 13 14 ADDITIONAL MOTIONS 15 16 1. Request the City Council to consider directing staff to prepare a parking study of 17 residential neighborhoods to assess peak utilization and extend the no parking 18 requirement for ADUs on those blocks with a street parking peak utilization under 50%. 19 NIC the properties located within RPP neighborhoods Commissioner Rosenblum 20 motioned to accept and Commissioner Gardias seconded the motion. The amendment 21 passed 4-2 (Vice-Chair Waldfogel and Commissioner Tanaka against). 22 2. Request the City Council to consider directing staff to prepare an ordinance to enable 23 underground parking in residential neighborhoods. Commissioner Tanaka motioned to 24 accept and Chair Alcheck seconded the motion. The amendment passed 5-1 25 3. Direct staff to consider and revise as appropriate Section 18.42.040 (a) 7 (vi) to allow an 26 accessory dwelling unit to have an entrance facing the same lot line as the primarily 27 dwelling unit's entrance; explore changes to Section 18.42.040 (a) 6 to make this 28 requirements more clear; and, include information in the council report that addresses 29 concerns regarding absentee owners and enforcement of the ordinance. Commissioner 30 Gardias motioned to accept, Commissioner Rosenblum seconded the motion. The 31 amendment passed 6-0. 32 Approval of Minutes 33 Public Comment is Permitted. Five (5) minutes per speaker.1,3 34 6. October 26, 2016 Planning & Transportation Commission Minutes 35 7. November 9, 2016 Planning & Transportation Committee Minutes 36 37 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. Chair Alcheck: Ok there are two things we need to do and one thing I'd like to say before we 1 leave. First I want a can I get a Motion to approve the minutes from October 26th and 2 November 9th? 3 4 MOTION 5 6 Commissioner Fine: I move we approve the minutes from October/November. 7 8 Chair Alcheck: Any second? 9 10 SECOND 11 12 Commissioner Rosenblum: Second. 13 14 Chair Alcheck: Thank you. All those in favor approving the minutes please say aye. Excellent. 15 That’s six in favor, zero dissenting. 16 17 MOTION PASSED (6-0) 18 19 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. Commission Action: A motion was made by Commissioner Fine to accept the minutes from 1 October 26, 2016 and November 9, 2016 and was seconded by Chair Alcheck. The motion 2 passed 6-0. 3 Committee Items 4 5 Chair Alcheck: Ok. Are there any committee items that need to be addressed at this late hour? 6 No we're not there yet. 7 8 Commissioner Fine: Just one quick thing please keep in mind we will need a new liaison to the 9 Citizen’s Advisory Committee (CAC). 10 11 Chair Alcheck: Right. We will deal with that in January. 12 Commissioner Questions, Comments or Announcements 13 14 Chair Alcheck: Ok it's an opportunity right now for Commissioners to raise any questions, 15 comments or announcements. Are there any comments, questions, or announcements at this 16 late hour? 17 18 Vice-Chair Waldfogel: I'm really sorry to do this this late at night, but I've heard some 19 community issues about large buses that are parked and orbiting in neighborhoods and I 20 believe that we do have some code discretion to deal with this. So I just want to make sure 21 that this is publicly aired and that there's some activity going on to look at, to explore this issue. 22 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. 1 Jonathan Lait, Assistant Director: Yes. Apologize, yes there is we’ll, we can report back to the 2 Commission on that. 3 4 Vice-Chair Waldfogel: Thank you. 5 6 Chair Alcheck: Ok, it's late, but I just want to quickly make a comment that in the future in our 7 future meetings if there are topics that are a little bit, if there are topics of interest that 8 Commissioners have moving forward and they would like to explore them you are welcome to 9 email me and if there is a second Commissioner that you'd like to work with on a topic and then 10 propose it during this comments and questions and announcements section for staff to help us 11 explore that's going to be a process that we will have moving forward. So if there is a specific 12 item that you think this Commission should be exploring and you would like to create an 13 opportunity to agendize that item in one of our future meetings please let me know and then 14 we can prepare an opportunity for you to raise that at one of these comment opportunities and 15 then we can have a process to have it agendized in the future. I have one question. Go ahead. 16 17 Commissioner Gardias: Yeah I mean this is the technical question about the meeting minutes 18 that we approved from the prior meeting. So no because I had no time to edit the minutes. 19 There was no specific request from Yolanda as it was coming from Robin in the past to provide 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. the edit which of course we should be doing regardless of such a specific request. I just want to 1 make sure that we can still provide those edits regardless of our vote. 2 3 Cara Silver, Senior Assistant City Attorney: So if that's the case if you have amendments to 4 minutes that have already been approved we would then you can send those to Yolanda and 5 then we will reagendize the amended minutes for approval. 6 7 Chair Alcheck: Yeah I think in light of that why don't we just make sure that our secretary sends 8 us the minutes and if there is an issue will you communicate it to staff so they can reagendize? 9 If there are amendments communicated to staff they can reagendize it and we will revote on 10 those approvals. 11 12 Jonathan Lait, Assistant Director: So how did it go before? We would send you the minutes? 13 14 Chair Alcheck: Typically we get the minutes. 15 16 Mr. Lait: As a part of the packet. Did, do you not get them? 17 18 Chair Alcheck: Actually we get them separately. We get them separately as an email. 19 20 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. Mr. Lait: Ok. 1 2 Chair Alcheck: And we there is a process by which any issues related to misunderstanding of the 3 mike or whatnot we can… 4 5 Mr. Lait: Ok, because we’ve included this that’s this whole back section of your report here, 6 your packet is this is all the minutes. Do you not? 7 8 Chair Alcheck: Actually if that's the case may I suggest that in the future you actually send us 9 the minutes in a digital form. Because the and the reason and she's in the past she's done it as 10 a Word document and that's particularly helpful because it allows us to basically search our 11 own name and find our own sections and make edits that are relevant to just us. 12 13 Mr. Lait: Ok. 14 15 Chair Alcheck: Thank you. 16 17 Adjournment 18 19 Chair Alcheck: Ok that concludes I think our meeting. Everybody thank you for your hard work 20 tonight and we'll see you in December. Bye bye. 21 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. 1 Meeting was adjourned at 11:15pm 2 DRAFT _______________________ 1. Spokespersons that are representing a group of five or more people who are identified as present at the meeting at the time of the spokesperson’s presentation will be allowed up to fifteen (15) minutes at the discretion of the Chair, provided that the non-speaking members agree not to speak individually. 2. The Chair may limit Oral Communications to 30 minutes for all combined speakers. 3. The Chair may reduce the allowed time to speak to three minutes to accommodate a larger number of speakers. Palo Alto Planning & Transportation Commission 1 Commissioner Biographies, Present and Archived Agendas and Reports are available online: 2 http://www.cityofpaloalto.org/gov/boards/ptc/default.asp. The PTC Commission members are: 3 4 Chair Michael Alcheck 5 Vice Chair Asher Waldfogel 6 Commissioner Adrian Fine 7 Commissioner Przemek Gardias 8 Commissioner Eric Rosenblum 9 Commissioner Greg Tanaka 10 11 Get Informed and Be Engaged! 12 View online: http://midpenmedia.org/category/government/city-of-palo-alto or on Channel 26. 13 14 Show up and speak. Public comment is encouraged. Please complete a speaker request card 15 located on the table at the entrance to the Council Chambers and deliver it to the Commission 16 Secretary prior to discussion of the item. 17 18 Write to us. Email the PTC at: Planning.Commission@CityofPaloAlto.org. Letters can be 19 delivered to the Planning & Community Environment Department, 5th floor, City Hall, 250 20 Hamilton Avenue, Palo Alto, CA 94301. Comments received by 2:00 PM the Tuesday preceding 21 the meeting date will be included in the agenda packet. Comments received afterward through 22 2:00 PM the day of the meeting will be presented to the Commission at the dais. 23 24 Material related to an item on this agenda submitted to the PTC after distribution of the 25 agenda packet is available for public inspection at the address above. 26 Americans with Disability Act (ADA) 27 It is the policy of the City of Palo Alto to offer its public programs, services and meetings in a 28 manner that is readily accessible to all. Persons with disabilities who require materials in an 29 appropriate alternative format or who require auxiliary aids to access City meetings, programs, 30 or services may contact the City’s ADA Coordinator at (650) 329-2550 (voice) or by emailing 31 ada@cityofpaloalto.org. Requests for assistance or accommodations must be submitted at least 32 24 hours in advance of the meeting, program, or service. 33 City of Palo Alto | City Clerk's Office | 2/2/2017 6:01 PM 1 Carnahan, David From:Gitelman, Hillary Sent:Thursday, February 02, 2017 5:12 PM To:Linnea Wickstrom; Moitra, Chitra Cc:Council, City; Lee, Elena; Lait, Jonathan Subject:RE: City Council Hearing on Accessory Dwelling Units Ms. Wickstrom:    Thank you for this email to our project planner.  I wanted to let you and others who are interested in the subject of  ADUs know that the public hearing scheduled for Monday, February 6th is being proposed for continuance to March 6,  2017 due to a very full agenda.  We will be sending out an email about this to our list of interested parties tomorrow and  will take the opportunity to correct and clarify the information provided earlier.      As you have pointed out, the proposed ordinance has been crafted to respond to Council direction and will bring the  City’s Municipal Code into compliance with new State Regulations (SB 1069, AB 2299, and AB 2506).  The proposal  reduces the minimum lot size requirement for ADU eligibility in the R‐1 zoning districts (allowing ADUs on all R‐1  conforming lots), reduces or eliminates parking requirements (under specific conditions) and allows ADUs and Junior  Accessory Dwelling Units in existing buildings regardless of lot size.    To review the City Council staff report and new State laws regarding ADUs, please visit  http://www.cityofpaloalto.org/civicax/filebank/documents/55691    Many thanks,     Hillary       Hillary Gitelman | Planning Director | P&CE Department   250 Hamilton Avenue | Palo Alto, CA 94301 T: 650.329.2321 |E: hillary.gitelman@cityofpaloalto.org   Please think of the environment before printing this email – Thank you!   From: Linnea Wickstrom [mailto:ljwickstrom@comcast.net] Sent: Wednesday, February 01, 2017 7:33 PM To: Moitra, Chitra Cc: Council, City Subject: Re: City Council Hearing on Accessory Dwelling Units Importance: High Chitra, I take exception to this misrepresentation of the proposed changes to the ordinance. This interpretation has already produced notices to a large neighborhood association in which the sender has highlighted the City of Palo Alto | City Clerk's Office | 2/2/2017 6:01 PM 2 last sentence in red. I request that you immediately amend and resend this description to more accurately represent the proposal as it stands, with a notice that you are amending your description.  the minimum lot size is NOT being eliminated. The proposal is to allow ADUs on lots that are the standard size for the zoning.  The proposal moderates parking requirements based on a number of community factors, primarily on proximity to public transit  providing for Junior Accessory Dwelling units under specified conditions Linnea Wickstrom Monroe Drive Palo Alto On 2/1/17 5:10 PM, "Moitra, Chitra" <Chitra.Moitra@CityofPaloAlto.org> wrote: Hello Everyone The City Council will be discussing a Draft Ordinance on Accessory Dwelling Units at the Monday, February 6, 2017 meeting tentatively scheduled to begin at 8:45 pm (item #12). The draft ordinance has been recommended for approval by the Planning and Transportation Commission (PTC). The changes are proposed to respond to Council direction and to bring the City’s Municipal Code into compliance with the new State Regulations (SB 1069, AB 2299, and AB 2506). The proposal includes eliminating the minimum lot size requirement for ADU eligibility in the R-1 zoning districts, reducing or eliminating parking requirements and allowing Junior Accessory Dwelling Units (conversion of an existing bedroom into a smaller ADU). To review the City Council staff report and new State laws regarding ADUs, please visit http://www.cityofpaloalto.org/civicax/filebank/documents/55691 The project website is at: http://www.cityofpaloalto.org/gov/depts/pln/advance/accessory_dwelling_units_regulations_upd ate.asp <http://www.cityofpaloalto.org/gov/depts/pln/advance/accessory_dwelling_units_regula tions_update.asp> Please email your questions or comments to the project planner Chitra Moitra at Chitra.Moitra@CityofPaloAlto.org <mailto:Chitra.Moitra@CityofPaloAlto.org> . You can also contact Chitra at (650) 329-2170. Updates on future meetings will be posted on the project website. City of Palo Alto | City Clerk's Office | 2/2/2017 6:01 PM 3 Chitra Moitra Planner Planning and Community Environment Department 250 Hamilton Avenue, Palo Alto, CA 94301 Email: chitra.moitra@cityofpaloalto.org City of Palo Alto | City Clerk's Office | 2/2/2017 11:20 AM 1 Carnahan, David From:Apolak Borthakur <apolak_borthakur@yahoo.com> Sent:Wednesday, February 01, 2017 7:28 PM To:Council, City Subject:Fw: Accessory Dwelling Unit I do not support creation of more housing in Palo Alto. We already have a lot of congestion, traffic and lack of parking. Adding more housing would only make the problems worse. And it will lower house prices. I think the city council should prioritize the needs and wants of the house owner taxpayers (rather than the folks who live in apartments and do not pay real estate taxes). I do understand that several folks who cannot afford Palo Alto but want to live here, are trying to get cheap mass housing units approved. But, should we really cater to those folks who have the sense of entitlement, at the cost of making traffic, parking, congestion, and house values worse in PA? From: "Chitra.Moitra@CityofPaloAlto.org" <Chitra.Moitra@CityofPaloAlto.org> To: apolak_borthakur@yahoo.com Sent: Wednesday, February 1, 2017 7:10 PM Subject: Accessory Dwelling Unit Mail List Sign-up Thank you for submitting a request to be added to the Accessory Dwelling Unit Mail List. You will receive periodic updates as they are sent out. For more information, please contact: Chitra.Moitra@CityofPaloAlto.org Thank you, Planning and Community Environment Staff First Name Apolak Last Name Borthakur Email Address apolak_borthakur@yahoo.com Phone City of Palo Alto | City Clerk's Office | 2/2/2017 11:20 AM 3 The project website is at: http://www.cityofpaloalto.org/gov/depts/pln/advance/accessory_dwelling_units_reg ulations_update.asp <http://www.cityofpaloalto.org/gov/depts/pln/advance/accessory_dwelling_ units_regulations_update.asp> Please email your questions or comments to the project planner Chitra Moitra at Chitra.Moitra@CityofPaloAlto.org <mailto:Chitra.Moitra@CityofPaloAlto.org> . You can also contact Chitra at (650) 329-2170. Updates on future meetings will be posted on the project website. Chitra Moitra Planner Planning and Community Environment Department 250 Hamilton Avenue, Palo Alto, CA 94301 Email: chitra.moitra@cityofpaloalto.org City of Palo Alto | City Clerk's Office | 2/2/2017 11:20 AM 4 Carnahan, David From:Linnea Wickstrom <ljwickstrom@comcast.net> Sent:Wednesday, February 01, 2017 8:55 PM To:Moitra, Chitra Cc:Council, City Subject:Re: City Council Hearing on Accessory Dwelling Units Importance:High Chitra, Oh yes. Please add to the amended description the fact that the proposed changes are to conform to the new California state laws that went into effect on January 1, 2017. Linnea Wickstrom On 2/1/17 7:33 PM, "Linnea Wickstrom" <ljwickstrom@comcast.net> wrote: Chitra, I take exception to this misrepresentation of the proposed changes to the ordinance. This interpretation has already produced notices to a large neighborhood association in which the sender has highlighted the last sentence in red. I request that you immediately amend and resend this description to more accurately represent the proposal as it stands, with a notice that you are amending your description.  the minimum lot size is NOT being eliminated. The proposal is to allow ADUs on lots that are the standard size for the zoning.  The proposal moderates parking requirements based on a number of community factors, primarily on proximity to public transit  providing for Junior Accessory Dwelling units under specified conditions Linnea Wickstrom Monroe Drive Palo Alto On 2/1/17 5:10 PM, "Moitra, Chitra" <Chitra.Moitra@CityofPaloAlto.org> wrote: Hello Everyone The City Council will be discussing a Draft Ordinance on Accessory Dwelling Units at the Monday, February 6, 2017 meeting tentatively scheduled to begin at 8:45 pm (item #12). The draft ordinance has been recommended for approval by the Planning and Transportation Commission (PTC). The changes are proposed to City of Palo Alto | City Clerk's Office | 2/2/2017 11:20 AM 5 respond to Council direction and to bring the City’s Municipal Code into compliance with the new State Regulations (SB 1069, AB 2299, and AB 2506). The proposal includes eliminating the minimum lot size requirement for ADU eligibility in the R-1 zoning districts, reducing or eliminating parking requirements and allowing Junior Accessory Dwelling Units (conversion of an existing bedroom into a smaller ADU). To review the City Council staff report and new State laws regarding ADUs, please visit http://www.cityofpaloalto.org/civicax/filebank/documents/55691 The project website is at: http://www.cityofpaloalto.org/gov/depts/pln/advance/accessory_dwelli ng_units_regulations_update.asp <http://www.cityofpaloalto.org/gov/depts/pln/advance/accessor y_dwelling_units_regulations_update.asp> Please email your questions or comments to the project planner Chitra Moitra at Chitra.Moitra@CityofPaloAlto.org <mailto:Chitra.Moitra@CityofPaloAlto.org> . You can also contact Chitra at (650) 329-2170. Updates on future meetings will be posted on the project website. Chitra Moitra Planner Planning and Community Environment Department 250 Hamilton Avenue, Palo Alto, CA 94301 Email: chitra.moitra@cityofpaloalto.org City of Palo Alto | City Clerk's Office | 2/2/2017 6:01 PM 1 Carnahan, David From:KMeier <meierk@gmail.com> Sent:Thursday, February 02, 2017 5:47 PM To:Council, City Subject:ADU Ordinance Dear City Council Members, As a mother of a teenage son with Down syndrome, I am writing in support of a modern ADU ordinance for Palo Alto that will allow people with disabilities an affordable way to stay in Palo Alto near their families. For us, this means letting our son have the independence and freedom he deserves with the safety of living near family and assistance. For others this may mean caring for aging parents or disabled friends or siblings. Please match the California State standard for parking or even ease those requirements. My son will never be able to drive a car. We live two blocks the #35 bus line. Companies like Lyft and Uber will make getting around without a car easy and affordable. Please allow ADUs on standard lots so that regular families have an option to help their families stay nearby. Please make the permitting and utility fees proportionate to the project and specify them in the draft. Please allow garage conversions and amnesty for current illegal conversions. Please allow flexible designs, especially for units for people with disabilities who may need special considerations in building designs. I worry a lot how we will be able to stay in Palo Alto once my son becomes an adult. I am a long-time Palo Altan. I attended high school here, I work here and planned to stay here with my friends and family after I retire. I love Palo Alto, but the overpriced housing market crushes those of us who have to provide housing for relatives with disabilities who need family assistance. People with disabilities enrich our diversity and our community -- please consider them and their families when considering a modern ADU ordinance. I have to work on Monday nights; otherwise, I would bring my son to the meeting a speak to you directly about this. Thank you for your consideration. Sincerely, Kristin Meier City of Palo Alto | City Clerk's Office | 2/5/2017 12:57 PM 1 Carnahan, David From:LWV of Palo Alto <lwvpaoffice@gmail.com> Sent:Friday, February 03, 2017 2:58 PM To:Council, City Subject:February 6, 2017, Agenda Item No. 12: Ordinance Regarding Accessory Dwelling Units Attachments:CC ADUs final 2-6-17.docx Dear City Council, Attached please find our letter regarding the February 6, 2017, Agenda Item No. 12: Ordinance Regarding Accessory Dwelling Units. Thank you. Bonnie Packer President -- League of Women Voters of Palo Alto 3921 E. Bayshore Road, Suite 209 Palo Alto, CA 94303 (650) 903-0600 February 3, 2017 Greg Scharff, Mayor, and City Council Members 250 Hamilton Ave Palo Alto, CA 94301 Dear Mayor Scharff and City Council Members, Re: February 6, 2017, Agenda Item No. 12: Ordinance Regarding Accessory Dwelling Units Dear Mayor Scharff and City Council Members, The League of Women Voters of Palo Alto (LWVPA) supports increasing the density of single family residential areas in various ways to improve the diversity of housing opportunities for all economic levels. Allowing accessory dwelling units is one way to do this. For this reason, LWVPA supports the changes to the existing ordinance to meet new state requirements permitting accessory dwelling units (ADUs) and defining junior accessory dwelling units (JADUs). LWVPA supports the inclusion of junior accessory units in this ordinance. In particular, an ADU within the envelope of the existing unit will not change the mass of the main single family home and allows no more residents than are currently permitted in the home today. A separate entrance allows for privacy from the principal unit. The reduction in parking numbers and placement of the units is more realistic than the current requirements. LWVPA also strongly supports the elimination of the requirement that a lot be at least 35% greater than the minimum lot size in R1 and R1 subdistricts. This creates many more opportunities for ADUs. While LWVPA supports the greater flexibility for ADUs in the proposed ordinance, we feel there is room to provide even more incentives to create these additional housing opportunities. Thus, we urge the Council to seriously consider those recommendations from members of the public that encourage the creation of more of ADUs. Thank you, Bonnie Packer President League of Women Voters of Palo Alto THE LEAGUE OF WOMEN VOTERS OF PALO ALTO 3921 E. BAYSHORE RD., SUITE 209 • PALO ALTO, CALIFORNIA 94303 • 650-903-0600 • www.lwvpaloalto.org City of Palo Alto | City Clerk's Office | 2/5/2017 1:04 PM 1 Carnahan, David From:Linnea Wickstrom <ljwickstrom@comcast.net> Sent:Thursday, February 02, 2017 8:07 PM To:Gitelman, Hillary; Moitra, Chitra Cc:Council, City; Lee, Elena; Lait, Jonathan Subject:Re: City Council Hearing on Accessory Dwelling Units Hillary, Thank you for your email. I very much appreciate your evaluation of my comments and will look forward to the amended announcement accompanying the continuance to March 6th. Regards, Linnea On 2/2/17 5:11 PM, "Gitelman, Hillary" <Hillary.Gitelman@CityofPaloAlto.org> wrote: Ms. Wickstrom: Thank you for this email to our project planner. I wanted to let you and others who are interested in the subject of ADUs know that the public hearing scheduled for Monday, February 6th is being proposed for continuance to March 6, 2017 due to a very full agenda. We will be sending out an email about this to our list of interested parties tomorrow and will take the opportunity to correct and clarify the information provided earlier. As you have pointed out, the proposed ordinance has been crafted to respond to Council direction and will bring the City’s Municipal Code into compliance with new State Regulations (SB 1069, AB 2299, and AB 2506). The proposal reduces the minimum lot size requirement for ADU eligibility in the R-1 zoning districts (allowing ADUs on all R-1 conforming lots), reduces or eliminates parking requirements (under specific conditions) and allows ADUs and Junior Accessory Dwelling Units in existing buildings regardless of lot size. To review the City Council staff report and new State laws regarding ADUs, please visit http://www.cityofpaloalto.org/civicax/filebank/documents/55691 <http://www.cityofpaloalto.org/civicax/filebank/documents/55691> Many thanks, Hillary Hillary Gitelman | Planning Director | P&CE Department 250 Hamilton Avenue | Palo Alto, CA 94301 City of Palo Alto | City Clerk's Office | 2/5/2017 1:04 PM 2 T: 650.329.2321 |E: hillary.gitelman@cityofpaloalto.org Please think of the environment before printing this email – Thank you! From: Linnea Wickstrom [mailto:ljwickstrom@comcast.net] Sent: Wednesday, February 01, 2017 7:33 PM To: Moitra, Chitra Cc: Council, City Subject: Re: City Council Hearing on Accessory Dwelling Units Importance: High Chitra, I take exception to this misrepresentation of the proposed changes to the ordinance. This interpretation has already produced notices to a large neighborhood association in which the sender has highlighted the last sentence in red. I request that you immediately amend and resend this description to more accurately represent the proposal as it stands, with a notice that you are amending your description.  the minimum lot size is NOT being eliminated. The proposal is to allow ADUs on lots that are the standard size for the zoning.  The proposal moderates parking requirements based on a number of community factors, primarily on proximity to public transit  providing for Junior Accessory Dwelling units under specified conditions Linnea Wickstrom Monroe Drive Palo Alto On 2/1/17 5:10 PM, "Moitra, Chitra" <Chitra.Moitra@CityofPaloAlto.org> wrote: Hello Everyone The City Council will be discussing a Draft Ordinance on Accessory Dwelling Units at the Monday, February 6, 2017 meeting tentatively scheduled to begin at 8:45 pm (item #12). The draft ordinance has been recommended for approval by the Planning and Transportation Commission (PTC). The changes are proposed to respond to Council direction and to bring the City’s Municipal Code into compliance with the new State Regulations (SB 1069, AB 2299, and AB 2506). The proposal includes eliminating the minimum lot size requirement for ADU eligibility in the R-1 zoning districts, reducing or eliminating parking requirements and allowing Junior Accessory Dwelling Units (conversion of an existing bedroom into a smaller ADU). To review the City Council staff report and new State laws regarding ADUs, please visit http://www.cityofpaloalto.org/civicax/filebank/documents/55691 City of Palo Alto | City Clerk's Office | 2/5/2017 1:04 PM 3 The project website is at: http://www.cityofpaloalto.org/gov/depts/pln/advance/accessory_dwelling_units_reg ulations_update.asp <http://www.cityofpaloalto.org/gov/depts/pln/advance/accessory_dwelling_ units_regulations_update.asp> Please email your questions or comments to the project planner Chitra Moitra at Chitra.Moitra@CityofPaloAlto.org <mailto:Chitra.Moitra@CityofPaloAlto.org> . You can also contact Chitra at (650) 329-2170. Updates on future meetings will be posted on the project website. Chitra Moitra Planner Planning and Community Environment Department 250 Hamilton Avenue, Palo Alto, CA 94301 Email: chitra.moitra@cityofpaloalto.org