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HomeMy WebLinkAbout2006-10-10 Ordinance 4918ORDINANCE NO. 4918 ORDINANCE OF THE COUNCIL OF THE CITY OF PALO ALTO AMENDING SECTION 18.08.040 OF THE PALO ALTO MUNICIPAL CODE (THE ZONING MAP) TO CHANGE THE CLASSIFICATION OF PROPERTY KNOWN AS 901 SAN ANTONIO ROAD: TAUBE-KORET CAMPUS FOR JEWISH LIFE PROJECT FROM GM TO PC PLANNED COMMUNITY, A COMPREHENSIVE PLAN AMENDMENT TO CHANGE THE LAND USE MAP FROM LIGHT INDUSTRIAL TO MIXED USE, A VARIANCE FROM A HEIGHT REQUIREMENT, AND A BELOW MARKET RATE HOUSING PLAN The Council of the City of Palo Alto does ORDAIN as follows: SECTION 1. Application and Hearings. (a) Application has been made to the City for approval of the demolition of an existing commercial parking lot at 901 San Antonio Road, and the construction on an approximately eight and one-half acre site bounded by San Antonio Road, Fabian Way, and Charleston Road of a ±432, 200 square foot mixed-use building including 193 condominium style congregate care and assisted living senior dwelling units, ±134,100 square feet of community center space, and an at-grade parking garage (the "Project"). (b) The Architectural Review Board at its meeting of May 18; 2006 considered the Project and recommended its approval, subject to certain conditions. (c) The Planning Commission, after duly noticed public hearings held June 28, 2006 and July 26, 2006 recommended that Section 18.08.040 (the Zoning Map) of the Palo Alto Municipal Code be amended as hereinafter set forth to permit construction of the Project. (d) The Council, after due consideration of the recommendations, finds that the proposed amendment is in the public interest and will promote the public health, safety and welfare, as hereinafter set forth. SECTION 2. Variance. The Proj ect requires a variance from the height requirements of Section 18.68.150 of the Palo Alto Municipal Code, which sets the maximum height of building within the PC district at 50-feet above grade. The extent of the variance request is 1 061107 syn 0120168 contained in Exhibit "B", attached hereto and incorporated herein by reference. (a) The Planning conunission, after duly noticed public hearings held June 28, 2006 and July 26, 2006 reconunended that the variance be granted. (b) The Council finds, with respect to the subject property, that: (i) Because of special circumstances applicable to the subject property, including (but not limited to) size, shape, topography, location, or surroundings, the strict application of the requirements and regulations prescribed in this title substantially deprives such property of privileges enjoyed by other property in the vicinity and in the same zoning district as the subject property. Special circumstances that are expressly excluded from consideration are: (A) 'fhe personal circumstances of the property owner, and (B) Any changes in the size or shape of the subject property made by the property owner or his predecessors in interest while the property was subject to the same zoning designation. The TKCJL project would be located on a site in a flood zone designated as Zone "AE" of the lOa-year tidal flood plan which, in the case of a lOa-year storm, could flood up to 8 feet above sea level in the event of over-tapping or failure of Bayfront levees. The City of Palo Alto and FEMA require that the first floor of occupied area shall be at least 8 feet above sea level. The site currently ranges as low as 3 feet above sea level to a maximum of 5.5 feet above sea level. Furthermore, the project site is subject to a Regional Water Quality Control Board (RWQCB) cleanup order. This order requires that any change in use from the current surface parking lot and office building to a more environmentally "sensitive" use requires approval and implementation of a Risk Management Plan ("RMP") approved by the RWQCB. Senior housing, classrooms, adult education and recreation areas are all considered sensitive uses. Among the requirements of the RMP are: (i) the entire site must be protected wi th an elaborate membrane to serve as a vapor barrier; (ii) no occupied building can be placed on a slab that is in direct contact with soil; (iii) areas under an occupied building must be mechanically ventilated; and (iv)there can be no excavation or lowering of the site for construction of parking. These requirements necessitate the construction of a parking facility that is above grade. In order to reduce the visual impact that a multi-story parking facility would bring to the site, the applicant has proposed a single-level parking facility with the residential and conununity center uses on top of the parking podium. The project, when developed with the garage and four stories of buildings, would exceed 50 feet in height. 2 061107 syn 0120168 (ii) The granting of the application shall not affect substantial compliance with the regulations or constitute a grant of special privileges inconsistent with the limitations upon other properties in the vicinity and in the same zoning district as the subject property. The project site contains unique conditions as described in Section 2, (b) (i) that require specific construction methods and techniques be used that would result in the residential and community center uses to be located adjacent to grade. (iii) The granting of the application is consistent with the Palo Alto Comprehensive Plan and the purposes of this title (Zoning), in that the project would comply with all other provisions of the PC district as described in PAMC 18.86 and with the applicable policies and programs of the Comprehensive Plan as described in Resolution No 8646, Section 2 (Architectural Review). (iv) The granting of the application will not be detrimental or injurious to property or improvements in the vicinity, will not be detrimental to the public health, safety, general welfare, or convenience. The TKCJL project is a large parcel adjacent to Highway 101 and San Antonio Road with minimal impacts on developments to the east. The BUILD project adjacent to the north would be a PC Zone, and has been designed specifically to be compatible with the TKCJL project. The TKCJL buildings create a transition to commercial buildings on Fabian Way and Charleston Road. There are no residential buildings adjacent to or across the street from the TKCJL project. The single-family neighborhoods to the west are separated from the project by arterial streets and would be located approximately 225 to 300 feet from the closest residential buildings, (c) A variance from the height and daylight plane requirements of Section 18.68.150 of the Palo Alto Municipal Code is hereby granted. The extent of the deviation from these height and daylight plane requirements shall be that shown on the final development plans reviewed and approved pursuant to Section 6 below. In no case shall the height of any building, measured to the top of the parapet wall, exceed 59'8" and no rooftop equipment shall exceed a height of 75' above grade. SECTION 3. Amendment of Zoning Map. Section 18.08.040 of the Palo Alto Municipal Code, the "Zoning Map," is hereby amended by changing the zoning of certain property known as 901 San Antonio Road (the "subject property") from "GM General Manufacturing" to "PC Planned Community No. 8646." The subject property, consisting of approximately 8.5 acres, is shown on the map labeled Exhibit "A, II attached hereto and incorporated herein by reference. 3 061107 syn 0120168 SECTION 4. Amendment of Comprehensive Plan. The Comprehensive Plan Land Use Map, is hereby amended by changing the land use of certain property known as 901 San Antonio Road- TKCJL from "Light Industrial" to "Mixed-Use" The subject property, consisting of approximately four acres, is shown on the map labeled Exhibit "A," attached hereto and incorporated herein by reference. SECTION 5. Findings for Approval of Planned Community District. The City Council, in approving the Planned Community district, hereby finds that: (a) The site is so situated and the uses proposed for the site are such that general or combining zoning districts will not provide sufficient flexibility to allow the proposed development in that none of the City's conventional zoning districts could accommodate the proposed square footage, floor area ratio, and building height unless variances were granted. (b) Development of the Project on the site will provide public benefits not otherwise attainable, as more specifically described below. (i) Conversion of commercially planned and zoned land for residential uses containing diverse housing types. The project would result in the redevelopment of a site listed in the Housing Sites Inventory list of the Comprehensive Plan's Housing Element to a mixed use project containing 193 total units consisting of assisted living and congregate care units. Congregate care units would provide services and assistance for more independent seniors who wish to live in a supportive and structured environment. Assisted living units are for seniors living less independently who require more personal and individualized services. (ii) Community Center Uses Shared with the City of Palo Alto and the BUILD/BRIDGE Project. TKCJL will enter into an agreement with the City of Palo Alto Department of Community Services for shared use of the Jewish Community Center (JCC) facilities. These facilities include the gymnasium, dance/aerobic rooms, storage, classrooms with sinks, a playing field, large meeting rooms, a large cultural hall and performance center and the teen center, among other components of the facility. In conjunction with the City, the JCC and the City will develop a schedule of jointly-sponsored programs, as well as programs and portions of the facility made available for programs sponsored only by the City. The specific provisions of the agreement, including hours of operation and payment of incidental fees, would be initially reviewed and approved by the Director of Community Services with follow-up reviews on an annual basis. TKCJL would 4 061107 syn 0120168 also provide reduced cost memberships for the JCC for residents of the adjacent BUILD/BRIDGE project. (iii) Project design goals. The project would include construction of residential and community center buildings that would serve the proposed uses of the site and that would be compatible with the immediate environment of the site. The publicly accessible edges have been designed to create connection between the public and private edges, such as the street level administrative office space for community serving organizations units along the shared driveway with the BUILD project and the stairways and walkways along the Charleston Roadside leading to the podium level and cultural hall of the project. The residential and community center areas are oriented into the central landscaped courtyard of the site. The buildings are well designed and have been determined to be consistent with the Architectural Review findings. (c) The Council further finds that the Project provides public benefits, as described above, that are of sufficient importance to make the Project as a whole one with substantial public benefit. (d) The uses permitted and the site development regulations applicable within the District are consistent with the Comprehensive Plan and are compatible with the existing and potential uses on the adj oining si tes or wi thin the general vicinity in that the Project would be consistent with the following Comprehensive Plan policies: (i) Policy L-5: Maintain the scale and character of the City. Avoid land uses that are overwhelming and unacceptable due to their size and scale. The existing industrial office building on the site, at approximately 90 feet in height, is visually prominent. The proposed BUILD project would remove this building and allow buildings up to 70 feet in height (as granted in conjunction with the variance described in Section 2) on a site bordered by tall trees on the east and one-and two story buildings (up to approximately 15 to 30 feet in height) to the north, west and south. The size and scale of proposed residential and community center structures on the TKCJL Site would not be visually overwhelming or incompatible with surrounding uses, including two- story industrial buildings with parking along the Fabian Way frontage. (ii) Policy L-7: Evaluate changes in land use in the context of regional needs, overall City welfare and objectives, as well as the desires of the surrounding neighborhoods. The proposed project would redevelop an existing vacant office building and parking lot to uses that would be beneficial to the immediate region and the City, in that the project would provide diverse 5 061107 syn 0120168 housing types and community center uses in an under utilized area of the City in the form of assisted living and congregate care living units. In addition, the project would include community center, open to the public that would include uses such as a preschool and cultural hall, a fitness center, play areas, administrative office space for non-profits, and community meeting areas. The development of the plan and associated studies included input from the public and project stakeholders. (iii)Policy L-ll: Promote increased compatibility, interdependence and support between commercial and mixed-use centers and the surrounding residential neighborhoods. The project would be compatible with nearby neighborhoods, in that the design and location of the high density housing, community center and the buildings that would be constructed to contain the uses are separated from single-family neighborhoods by arterial streets and smaller scale commercial uses. The architecture and neighborhood compatibility has been reviewed by the Architectural Review Board and was found to be well designed and of a appropriate scale to the immediate context of the area. (iv) Policy L-13: Evaluate alternative types of housing that increase density and provide more diverse housing opportunities. The proposed project is the designation of land for mixed-use development which would allow for the development of variety of housing types. The TKCJL site would be developed with assisted living and congregate care units. The project would be consistent with this policy as a result of the varied housing types and increased density proposed as a part of development. (v) Policy L-48: Promote high quali ty I creative design and site planning that is compatible with surrounding development and public spaces. Policy L-49: Design buildings to revitalize streets and public spaces and to enhance a sense of community and personal safety . Provide an ordered variety of entries, porches, windows, bays, and balconies along public ways where it is consistent with neighborhood character; avoid blank or solid walls at street level; and include human-scale details and massing. The proposed project would allow for the redevelopment of a vacant industrial property along San Antonio Road, Charleston Road, and Fabian Way and a smaller commercial use at the intersection of San Antonio Road and Charleston Road. The TKCJL project would include residential and community center buildings of varying size and architectural features that would support the uses contained within the buildings. Those portions of the project adjacent to the site edges, although exceeding the maximum height that would normally be allowed in the PC district, would be compatible with the immediate neighborhood of smaller scale commercial buildings and uses, in that these components of the project have been evaluated by the Architectural Review Board and 6 061107 syn 0120168 have been found to be consistent with the Architectural Review findings. (vi) Policy L-75: Minimize the negative physical impacts of parking lots. Locate parking behind buildings or underground wherever possible. The proposed BUILD and TKCJL projects include at-grade parking with residences, recreational, and community center uses built atop a podium structure above parking areas. This will avoid negative physical aspects of surface parking lots. Views of at-grade parking areas will be minimized through the growth of landscape plants surrounding the podium structure and by bringing some development down to street level to screen the parking area from the street. (vii)Policy T-1: Make land use decisions that encourage walking, bicycling, and public transit use. The proposed housing development located on San Antonio Road is one of two major transit corridors identified in the Comprehensive Plan as being desirable for increased housing densities. The BUILD and TKCJL projects include measures, including pedestrian walkways, to encourage pedestrian access within the entire 12.5 acre site. One bus route, VTA Express Route 104, operates adjacent to the 901 San Antonio Road site along East Charleston Road. Bus service on this route runs only on weekdays between Palo Alto and San Jose during morning and late afternoon commute periods. (viii) Goal H-1: A supply of affordable and market rate housing that meets Palo Alto's share of regional housing needs. The TKCJL project would contribute 24 units toward the fair share housing neeqs of Palo Alto. Policy H-2: Identify and implement a variety of strategies to increase housing density and diversity in appropriate locations. Emphasize and encourage the development of affordable and attainable housing. The proposed TKCJL proj ect includes residences for seniors in the form of assisted living and congregate care in a licensed residential facility. (ix) Program H-3: Encourage the conversion of non- residential lands to residential use to both increase the supply of housing, particularly affordable housing, and decrease the potential for the creation of new jobs that exacerbate the need for new housing. Land use and development applications that propose the conversion of non-residential land to residential or mixed use development will be given preferential or priority processing to encourage such conversion. Policy H-3: Continue to support the re- designation of suitable vacant or underutilized lands for housing or mixed uses containing housing. The proposed Comprehensive Plan amendment would convert a Light Industrial site, which currently contains an office building and fast food restaurant, to Mixed Use with housing anticipated to be one of the primary uses. The land use, density, and affordable units proposed by the BUILD project 7 061107 syn 0120168 and TKCJL project are consistent with the Comprehensive Plan program measure and policy regarding the conversion of non- residential and underutilized lands to residential or mixed use development. (x) Goal H-3: Housing opportunities for a diverse population, including very low, low and moderate income residents, and persons with special needs. Policy H-12: Encourage, foster and preserve diverse housing opportunities for very low, low, and moderate income households. The proposed BUILD development would offer housing opportunities (rental apartments) to very low and low income seniors and the TKCJL project would provide assisted living and congregate care for seniors. The projects, therefore, would diversify the City's housing stock in the project area. (xi) Program N-16: Continue to require replacement of trees, including street trees lost to new development, and establish a program to have replacement trees planted offsite when it is impractical to locate them onsite. Policy N-15: Require new commercial, mUlti-unit, and single family housing projects to provide street trees and related irrigation systems. Policy N-17: Preserve and protect heritage trees, including native oaks and other significant trees, on public and private property. The BUILD and TKCJL projects would protect trees to be retained and replace trees removed from the site in conformance with the City's Tree Ordinance and Tree Protection Manual. Street trees along the Fabian Street and San Antonio Road frontages will be replaced as required by the Department of Public Works. Two large redwood trees on the adjacent Space Systems/Loral property and healthy trees within the San Antonio Road right-of-way also will be protected from damage during construction activities, as described in Section II. G. Biological Resources Mitigation and Avoidance Measures. (xii)Policy N-28: Encourage developers of new projects in Palo Alto, including City projects, to provide improvements that reduce the necessity of driving alone. The project includes a mix of uses and shared parking to reduce the need for on-site and nearby residents to drive. In addition, much of the housing will be designed for seniors, which will result in fewer vehicle trips. Transportation Demand Management (TDM) measures, such as bicycle parking and van or shuttle service, will be incorporated into the projects to further reduce trip generation. SECTION 6. Development Plan Those certain plans entitled Taube-Koret Campus for Jewish Life, Palo Alto, California prepared by Steinberg Architects dated June 21, 2006, a copy of which is on file in the Planning Division office, and to which copy reference is hereby made, are hereby 8 061107 syn 0120168 approved as the Development Plan for the subject property, pursuant to Palo Alto Municipal Code Section 18.68.120. SECTION 7. Uses. (a) Permitted Uses. The permitted uses shall be limited to the following: (i) Continuing Care Retirement Community: In those areas designated on the Development Plan as the Jewish Senior Residence ("JSR"), 193 units will be licensed by the State of California Department of Social Services as a "Continuing Care Retirement Community". The uses within the JSR include senior independent living (congregate care), assisted living, including memory care units, but not including skilled nursing care. Ancillary uses to the 193 residences will be food service, limited retail and personal services, meeting rooms, classrooms, administrative offices, medical and professional offices ancillary to a senior residence, recreation and gathering spaces and parking ancillary to the residential uses. (ii) Community Center Use: In the area designated on the Development Planas part of the Jewish Community Center ("JCC), including day care for pre-school and school age children, private education, teen center, retail and personal services, eating and drinking services, class rooms and other adult meeting rooms, adult cultural activities, administrative offices, limited medical and professional services ancillary to community center acti vi ties, dance, music, photography and art studios, commercial recreation including pools, playing field, gymnasium and other fitness rooms, locker rooms and spas, a community cultural hall for major events, including seated meal services, religious services, and parking ancillary to the community center uses. (iii) Parking Garage: The following parking ratio shall be required: For the Continuing Care Retirement Community, 0.41 spaces per congregate care unit and 0.50 spaces per assisted living unit. For the Community Center, 3.83 spaces per 1,000 square feet and 3.16 spaces per 1,000 square feet for the preschool uses. SECTION 8. Outdoor Events with Amplified Sound Limitations. All outdoor events with amplified sound shall cease operations no later than 10:00 P.M., seven days per week. Noise levels shall not exceed limits prescribed by the City of Palo Alto's Noise Ordinance. These hours may be further restricted by the Director of Planning and Community Environment or referred to the Planning & Transportation Commission and City Council for review. 9 061107 syn 0120168 SECTION 9. Transportation Program. Demand Management The TKCJL project shall implement a Transportation Demand Management (TDM) Plan for employees designed to achieve a 20 percent alternative mode-use for employees to address local traffic concerns. The Plan shall include, at minimum, a guaranteed ride home program, carpool parking, bicycle lockers, showers, a transportation information kiosk, on-site transportation coordinators, on-site supporting amenities to eliminate the need for midday trips, including a cafeteria, childcare/preschool, recreational and athletic facilities, automatic teller machines, postage and mailing outlet, and on-site sundry shop. An annual survey of employees shall be conducted to determine the success or failure of TDM measures. A summary report of the .annual employee commute survey shall be submitted to the City of Palo Alto. SECTION 10. Site Development Regulations. (a) Compliance with Development Plan. All improvements and development shall be substantially in accordance with the Development Plan, and subject to the conditions of approval and mitigation measures adopted by City Council Resolutions No. 8645 and 8646. (i) Any exterior changes to the buildings or any new construction not specifically permitted by the Development Plan or by these site development regulations shall require an amendment to this Planned Community Zone or, if eligible, approval under Chapter 18.76 of the Palo Alto Municipal Code, as it is amended from time to time. (b) Tree Protection. The Development Plan requires the planting and protection of specified new trees within the development. These trees shall not be removed or destroyed without the prior approval of the City of Palo Alto in accordance with applicable procedures. (c) Parking and Loading Requirements. Two spaces per townhome residential unit and 0.41 spaces per congregate care unit and 0.50 spaces per assisted living unit shall be reserved for the use of the residential portions of the project; 3.83 spaces per 1,000 square feet for the Community Center and Commercial recreation uses; 3.16 spaces per 1,000 square feet for the Private Educational Facility Use. The plans indicate a loading facility accessible from San Antonio Road. A total number of 151 Class I and Class III bicycle parking spaces shall be included in the project. 10 061107 syn 0120168 (d) Below Market Rate (BMR) Housing Requirement. The Project shall provide 24 Below Market Rate congregate care and assisted living housing units and the associated residential living services provided by the Jewish Senior Residence. These 24 units would be made available at entry fee levels that comply with the income and affordability standards prescribed by the BMR Program for 59 years. The BMR program would include continuing support for the residents of the BMR units by subsidizing all monthly costs associated with room, care, food and extensive support services at income and affordability standards prescribed by the BMR Program for 59 years. In addition to the BMR plan, the applicant has committed a $5,000,000 endowment restricted exclusively for the support of residents who cannot afford either the initiation costs or the continuing monthly costs at the JSR. This endowment would provide housing and services above and beyond the BMR agreement. Twelve assisted living units will receive continuing support by subsidizing all monthly costs associated with room, care, food and extensive support services for 59 years without use of any proceeds of the $5,000,000 endowment for 15 years. A formal agreement must be executed prior to approval of the Final Map by the City Council. The Project's owner has described the BMR contributions, making a commitment to provide this housing and associated services. The provisions of this condition (d) (i) are set forth in a letter of understanding between the City of Palo Alto and the applicant, dated September 20, 2006. (e) Development Schedule. Phase One of the project, which will comprise 100% of the JSR and a substantial portion of the JCC will commence in 2007 and be completed within three years. The JCC will then proceed with subsequent construction phases for the reminder of the project, which would be completed during the years 2012 through 2022. The Director of Planning and Community Environment may extend these time limits once by not more than one year, as described in 18.68.130 of the Palo Alto Municipal Code. A detailed phasing plan is contained in Exhibit "C", attached hereto and incorporated herein by reference. (i) Variations in Phasing-It is recognized by the City that, as a non-profit dependent on fund raising, TKCJL may not have the resources to meet the phasing schedule set forth above. Developer may, therefore, request a change in the order, sequence and phasing of particular aspects of the Project components, providing the Director with a written explanation of and the reasons for the proposed change in phasing. In no event, however, shall the completion of Phase 1 occur later than December 2012, or the completion of Phase 2 occur later than December 2022, so long as reasonable progress 11 061107 syn 0120168 is made toward completion. Within 30 days after receiving the request, the Director: (1) shall determine whether additional environmental and/or architectural review is required; (2) may determine the timing of the construction or the dedications, exactions, mitigations, reservations, or other conditions of approval, including, without limitation, any public improvements, so that the improvements necessary to serve each component of the Proj ect and to mi tigate its impacts are completed before occupancy of such component; and, (3) shall approve or disapprove the requested change in writing. These variations in phasing supersede the extension provisions outlined in 18.68.130 of the Palo Alto Municipal Code, pertaining to Planned Community Districts. (ii) Condition of Site-Before any phase of the Project receives a building permit, the Developer shall have received ARB approval of plans for the temporary improvements proposed for the areas of the Project Site that are not proposed to be built under that particular building permit. (iii)Minor Variations in Project-Minor changes to the Proj ect may be approved by the Director, according to the provisions of Palo Al to Municipal Code Section 18.76.020 (b) (3) (D) for architectural review. "Minor" changes do not include changes in land use. SECTION 11. Environmental Impact Report. The City as the lead agency for the Project has caused to be prepared a Final Environmental Impact Report ("Final EIR"). Pursuant to State CEQA Guidelines section 15132, the Final EIR consists of the following documents and records: "901 San Antonio Draft EIR, February 2006;" "901 San Antonio Final EIR, June 2006", and the planning and other City records, minutes, and files constituting the record of proceedings. The Final EIR was prepared pursuant to the California Environmental Quality Act, Public Resources Code section 21000, et seq. ("CEQA"), and the State CEQA Guidelines, Cali fornia Code of Regulations, Title 14, section 15000, et seq. The Final EIR is on file in the office of the Director of Planning and Community Environment and, along with the planning and other City records, minutes and files constituting the record of proceedings, is incorporated herein by this reference. 12 061107 syn 0120168 SECTION 12. Certification. The City Council certifies that the Final EIR has been completed in compliance with the California Environmental Quality Act. The Final EIR was presented to the City Council and the City Council has reviewed and considered the information contained in the Final EIR, staff reports, oral and written testimony given at public hearings on the proposed Project, and all other matters deemed material and relevant before considering for approval the various actions related to the Project. The City Council hereby finds that the Final EIR reflects the independent judgment of the City as lead agency. SECTION 13. This ordinance shall be effective on the thirty-first day after the date of its adoption. INTRODUCED: October PASSED: 8-0 AYES: CORDELL, MOSSAR NOES: ABSTENTIONS: BARTON ABSENT: BEECHAM, ~OFORM: ,oc:e::==:: Asst. Clty Attorney 061107 syn 0120168 10, 2006 DREKMEIER, KLEINBERG 13 KISHIMOTO, KLEIN, MORTON, Planning and Environment