HomeMy WebLinkAbout1996-03-12 City CouncilTO:
Attention:
FROM:
AGENDA DATE:
SUBJ-ECT:
City of Palo Alto
City Manager’s Report
HONORABLE CITY COUNCIL
Policy and Services Committee
CITY MANAGER DEPARTMENT: Planning and
Community Environment
March 12, 1996 CMR: 175:96
Comprehensive Plan Update -- Incorporation of Citywide Land
Use and Transportation Study
REQUEST
The issue addressed in this staff report is how to treat the 1989 Citywide Land Use and
Transportation Study in the forthcoming Draft Comprehensive Plan.
RECOMMENDATIONS
Recognize in the Draft Comprehensive Plan the policy intent and value of the Citywide
Study. The Citywide Study, as a policy document, fits very well within the Draft
Comprehensive Plan. The four objectives of the Citywide Study are consistent with the Draft
Plan.
Reduce future commercial and industrial development potential to minimize
deteriorating traffic conditions;
Preserve existing businesses;
Encourage desirable uses such as housing by identifying commercial and industrial
sites or areas suitable for mixed-use or housing projects; and
Identify appropriate traffic mitigations in major employment areas and necessary
physical traffic improvements.
CMR:175:96 Page 1 of 21
The Draft Plan should recognize the importance of the Citywide Study by acknowledging
the Study’s objectives and the importance of the zoning and other actions taken in 1989. The
Draft Plan should include the following policy with supporting Plan text that indicates that
consideration of changes to the specific features of the Citywide Study needs to include
evaluation of the benefits to be gained from the change.
Policy: In evaluating potential increases in non-residential growth limits, consider the
objectives of the 1989 Citywide Land Use and Transportation Study.
POLICY IMPLICATIONS
The Draft Comprehensive Plan goals, policies and programs, to a very considerable degree,
are consistent with the objectives and general results of the Citywide Study. Both documents
seek to limit non-residential development and control the growth in traffic. Both documents
encourage development of more housing, including use of non-residential land for residential
use. Both documents recognize the need for limited intersection improvements and agree
that the City cannot build itself out of existing and future congestion.
The Citywide Study was not developed or implemented as a development cap. The Study
addressed most, but not all, non-residential development. The Study excluded most, but not
all, governmental facilities (e.g., airport, Water Quality Plant, Veteran’s Administration
Hospital) and non-residential Plarmed Community zones such as the Holiday Inn, Palo Alto
Medical Foundation and the Palo Alto Hyatt Hotel. Thus the development potential cited in
the Study relates to the build out under the City’s commercial and industrial zones, which is
close to, but not the same as, the build out of areas designated for commercial, industrial or
public sector employment activities in the Comprehensive Plan.
The Citywide Study was an important summation of the numerous planning studies that were
undertaken by the City in the 1980s. As such, the Study serves as an important set of
modifications to the current Comprehensive Plan and a key element in setting the stage for
the current Comprehensive Plan effort. The objectives and broad results of the Study should
not be lost. However, staff concludes that the next Comprehensive Plan would not well serve
the community if the details of the Study were continued in the new Plan as a narrow limit
on future flexibility.
The only development cap identified in the draft goals, policies and programs reviewed by
the Council is the downtown development cap resulting from the 1986 Downtown Study and
incorporated into the zoning ordinance. Staff does not recommend creation of more
development caps. As described in the staff report, the pace at which new additional floor
area (i.e., floor area beyond replacement of demolished floor area) is being created has been
CMR: 175:96 Page 2 of 21
relatively slow since completion of the Citywide Study in 1989. The goals, policies and
programs identified for the Draft Plan incorporate in many ways and places the philosophy
of the Citywide Study. New development caps would lead to future zoning complexity and,
if drawn too tightly, could conflict with efforts to revitalize areas such as Midtown and South
E1 Camino Real.
If the City Council is interested in pursuing development caps, the alternatives are a citywide
development limit or area-specific limits. A citywide limit, given the size and configuration
of Palo Alto, would not be a particularly meaningful number. Area-specific limits would
need to go beyond the Citywide Study for several reasons. First, as noted above, the
Citywide Study did not include all non-residential land uses. Second, for the area bounded
by University Avenue, E1 Camino Real, Embarcadero Road and the railroad tracks,
development approvals have exceeded the square footage numbers in the Citywide Study.
Third, the draft goals, policies and programs that the Council has directed be incorporated
into the Draft Plan encourage area studies (Midtown, Cal-Ventura, South E1 Camino Real,
PAMF/SOFA and the University Avenue Multi-modal Transit area) that could result in
modification of regulations to permit some additional development.
EXECUTIVE SUMMARY
The 1989 Citywide Land Use and Transportation Study resulted in a substantial reduction
in development potential by reducing the floor area ratios (FAR) of four nonresidential zones
(Service Commercial, Neighborhood Commercial, Office Research and General
Manufacturing) and reducing the amount of additional floor area that could be constructed
at the Stanford Shopping Center and Town and Country Village. A variety of other changes
were made to the zoning regulations, and the land use designation was changed at ten sites.
The Citywide Study did not establish a development cap and did not evaluate all non-
residential development. Between adoption of the Citywide Study in August 1989 and
September, 1995, the City approved about 451,000 square feet of additional floor area in the
areas and zones evaluated in the Citywide Study. Three developments outside the scope of
the Study (Holiday Inn Expansion, 1050 Arastradero and the Veterans Administration
Hospital) have added about another 289,000 square feet of floor area.
The Citywide Study’s objectives are, to a very considerable degree, consistent with the goals,
policies and programs identified by the City Council for inclusion in the Draft
Comprehensive Plan. Both documents seek to limit non-residential development and control
the growth in traffic. Both documents encourage development of more housing, including
use of non-residential land for residential use. Both documents recognize the need for
limited intersection improvements and agree that the City cannot build itself out of existing
and future congestion.
CMR: 175:96 Page 3 of 21
There are, however, subtle but important differences between the 1989 Citywide Study and
1996 planning policies. In 1996, there is greater understanding that Palo Alto exists in a very
competitive commercial and industrial environment. Just because land is located in Palo
Alto does not ensure economic success. There is also a notable difference between the
expected handling of follow-up studies in 1996 versus 1989. The coordinated area planning
concept envisions greater public participation, much more emphasis on economics and
receptivity to regulations that include three-dimensional representations of desired new
development rather than reliance on traditional zoning tools. Follow-up studies are to be
conducted with greater receptivity to the need for, value of, and economic requirements of
physical change. The hope is that by combining extensive and intensive public participation,
economic and planning expertise and more visually understandable regulations, ways can be
found to rejuvenate and redevelop areas that are experiencing significant economic and
physical problems. Thus, there is more receptivity to potential physical change in 1996 than
1989 and a recognition that upgrading parts of the community may need to involve changing
City land use regulations, including the possibility of, in selective locations, some increases
in development intensity. Finally, there is greater awareness in 1996 than 1989 of the value
to the City (and School District) revenue base of certain types of economic activities.
Within the nine areas evaluated in the Citywide Study, there are potential variations between
the Study results and the Draft Comprehensive Plan. Many of these differences reflect the
identification of five areas for future area studies (University Avenue Multimodel Train
Station Area, Midtown, Cal-Ventura, PAMF/SOFA, and South E1 Camino Real). Other
differences include the 1989 Holiday Inn expansion and the recent PAMF Urban Lane
Campus approvals in the Urban Lane area, the extension of the nonconforming use of the
former Maximart site, and some of the Land Use Plan Map changes considered by the
Council on February 29.
Staff concludes that the Citywide Study was an important summation of the numerous
planning studies that were undertaken by the City in the 1980s. As such, the Study serves
as an important set of modifications to the current Comprehensive Plan and a key element
in setting the stage for the current Comprehensive Plan effort. The objectives and broad
results of the Study should not be lost. However, the next Comprehensive Plan would not
well serve the community if the details of the Study were continued in the new Plan as a
narrow limit on future flexibility. Therefore, staff recommends recognition in the Draft
Comprehensive Plan of the policy intent and value of the Citywide Study without
incorporation of the Study’s detailed zoning limits and restrictions.
FISCAL IMPACT
To the extent that the alternative of translating the Citywide Study into specific area
development caps could restrict future efforts to revitalize some areas, the issues raised in
CMR:175:96 Page 4 of 21
this staff report could have fiscal impacts. The issue of fiscal impact will be addressed when
the Draft Comprehensive Plan is prepared.
ENVIRONMENTAL ASSESSMENT
The Draft Comprehensive Plan will be the subject of an Environmental Impact Report. The
issues before the Policy and Services Committee involve identification of policies and
programs for inclusion in the Draft Plan. As such, no environmental review or findings are
necessary at this time.
PREPARED BY: Ken Schreiber
KENNETH R. SCHREIBER
Director of Planning and
Community Environment
CITY MANAGER APPROVAL:
Ci
CMR: 175:96 Page 5 of 21
SUBJECT:Comprehensive Plan Update -- Incorporation of Citywide Land Use and
Transportation Study
REQUEST
The issue addressed in this staff report is how to treat the 1989 Citywide Land Use and
Transportation Study in the forthcoming Draft Comprehensive Plan.
RECOMMENDATIONS
Recognize in the Draft Comprehensive Plan the policy intent and value of the Citywide
Study. The Citywide Study, as a policy document, fits very well within the Draft
Comprehensive Plan. The four objectives of the Citywide Study are consistent with the Draft
Plan.
Reduce future commercial and industrial development potential to minimize
deteriorating traffic conditions;
2.Preserve existing businesses;
o Encourage desirable uses such as housing by identifying commercial and
industrial sites or areas suitable for mixed-use or housing projects; and
Identify appropriate traffic mitigations in major employment areas and
necessary physical traffic improvements.
The Draft Plan should recognize the importance of the Citywide Study by acknowledging
the Study’s objectives and the importance of the zoning and other actions taken in 1989. The
Draft Plan should include the following Policy with supporting Plan text that indicates that
consideration of changes to the specific features of the Citywide Study needs to include
evaluation of the benefits to be gained from the change.
Policy: In evaluating potential increases in nonresidential growth limits, consider the
objectives of the 1989 Cit3avide Land Use and Transportation Study.
BACKGROUND
On February 7, 1996, the City Council reviewed a staff report (CMR: 129:96) that identified
inconsistencies, conflicts and gaps in the Council’s review of draft goals, policies and
programs for the Comprehensive Plan. The Council referred to the Policy and Services
Committee further consideration of the issue of how to treat in the new Plan the 1989
Citywide Land Use and Transportation Study.
CMR:175:96 Page 6 of 21
The February 7, 1996 staff report addressed the issue of the Citywide Study in the following
way:
"Page 10, BE-9: Goal BE-9 is Maintain the limits of the 1989 Citywide Land
Use and Transportation Study with a notation that "Staff is to bring back
modifications to the Study necessary to have a consistent Comprehensive
Plan."
"DISCUSSION: For most nonresidential areas, the proposed Draft
Plan’s goals, policies and programs are consistent with the 1989
Citywide Study’s nonresidential floor area limits. Modifications to the
Citywide Study could occur with area and large site plans (e.g., Cal-
Ventura, Midtown, Stanford Medical Center) and a few other site
and/or use specific changes (e.g., conference hotel at Page Mill Road
and E1 Camino Real, Stanford Shopping Center). Staff would not
expect the overall Citywide limits contained in the Citywide Study. to
be exceeded in the life of the next Comprehensive Plan and probably
for years beyond that.
"RECOMMENDATION: Goal BE-9 should be modified to reflect that
the 1989 Citywide Study floor area ratios are not considered to be site
specific limits. The Economic Balance vision statement on page 10.
could become a goal with a related policy addressing the 1989 Study.
"GOAL: Assure a balance between supporting businesses, maintaining
residential character and preserving the environment.
"POLICY: In evaluating potential increases in nonresidential growth
limits, consider the objectives of the 1989 Citywide Land Use and
Transportation Study."
POLICY IMPLICATIONS
The Draft Comprehensive Plan goals, policies and programs, to a very considerable degree,
are consistent with the objectives and general results of the Citywide Study. Both documents
seek to limit non-residential development and control the growth in traffic. Both documents
encourage development of more housing, including use of non-residential land for residential
use. Both documents recognize the need for limited intersection improvements and agree
that the City cannot build itself out of existing and future congestion.
The Citywide Study was not developed or implemented as a development cap. The Study
addressed most, but not all, non-residential development. The Study excluded most, but not
CMR: 175:96 Page 7 of 21
all, governmental facilities (e.g., airport, Water Quality Plant, Veteran’s Administration
Hospital) and non-residential Planned Community zones such as the Holiday Inn, Palo Alto
Medical Foundation and the Palo Alto Hyatt Hotel. Thus the development potential cited in
the Study relates to the build out under the City’s commercial and industrial zones, which is
close to, but not the same as, the build out of areas designated for commercial, industrial or
public sector employment activities in the Comprehensive Plan.
The Citywide Study was an important summation of the numerous planning studies that were
undertaken by the City in the 1980s. As such, the Study serves as an important set of
modifications to the current Comprehensive Plan and a key element in setting the stage for
the current Comprehensive Plan effort. The objectives and broad results of the Study should
not be lost. However, staff concludes that the next Comprehensive Plan would not well serve
the community if the details of the Study were continued in the new Plan as a narrow limit
on future flexibility.
The only development cap identified in the draft goals, policies and programs reviewed by
the Council is the downtown development cap resulting from the 1986 Downtown Study and
incorporated into the zoning ordinance. Staff does not recommend creation of more
development caps. As described in the staff report, the pace at which new additional floor
area (i.e., floor area beyond replacement of demolished floor area) is being created has been
relatively slow since completion of the Citywide Study in 1989. The goals, policies and
programs identified for the Draft Plan incorporate in many ways and places the philosophy
of the Citywide Study. New development caps would lead to future zoning complexity and,
if drawn too tightly, could conflict with efforts to revitalize areas such as Midtown and South
E1 Camino Real.
If the City Council is interested in pursuing development caps, the alternatives are a citywide
development limit or area-specific limits. A citywide limit, given the size and configuration
of Palo Alto, would not be a particularly meaningful number. Area-specific limits would
need to go beyond the Citywide Study for several reasons. First, as noted above, the
Citywide Study did not include all non-residential land uses. Second, for the area bounded
by University Avenue, E1 Camino Real, Embarcadero Road and the railroad tracks,
development approvals have exceeded the square footage numbers in the Citywide Study.
Third, the draft goals, policies and programs that the Council has directed be incorporated
into the Draft Plan encourage area studies (Midtown, Cal-Ventura, South E1 Camino Real,
PAMF/SOFA and the University Avenue Multi-modal Transit area) that could result in
modification of regulations to permit some additional development.
CMR: ! 75:96 Page 8 of 21
DISCUSSION
Purposes and Outcomes of the Citvwide Land U~e and Transportation Study
The Citywide Study, which began in 1986 and concluded in August 1989, was initiated to
address community wide concerns about increasing traffic congestion. It is important to
remember that the early 1980s witnessed a major growth in commercial and industrial
development. The City’s initial planning responses focused on area-specific studies (i.e.,
East Bayshore Study - 1984, Park Boulevard GM Area Study - 1985, California Avenue
Study- 1985, San Antonio/West Bayshore Study - 1986, and Downtown Study- 1986). The
Citywide Study followed these area studies and had four main objectives:
Reduce future commercial and industrial development potential to minimize
deteriorating traffic conditions;
2.Preserve existing businesses;
Encourage desirable uses, such as housing, by identifying commercial and
industrial sites or areas suitable for mixed-use or housing projects; and
Identify appropriate traffic mitigations in major employment areas and
necessary physical traffic improvements.
Several conclusions from the Study process are important to emphasize:
Under previous zoning regulations, the City had the potential to roughly double the
existing approximately 25,000,000 square feet of commercial and industrial
development;
The Study focused on commercial and industrial zoning and did not incorporate
relatively smaller amounts of employment-generating activity resulting from Planned
Community Zones (e.g., Holiday Inn, Palo Alto Medical Foundation, Palo Alto Hyatt)
and from some governmental activities (e.g., airport, City facilities, Veteran’s
Administration Hospital);
While 25,000,000 additional square feet of development could not have been
physically accommodated, future growth levels were assumed to be high, especially
based on the development activity of the early 1980s;
CMR: 175:96 Page 9 of 21
Three reduced-development scenarios were evaluated in the Citywide Study, ranging
from an additional 2,030,000 square feet of development to 4,937,000 square feet of
development;
Relatively little difference was found among the traffic impacts of the reduced-
development scenarios;
Peak hour traffic conditions were found to be poor on major routes, getting worse, and
would continue to deteriorate, even with no new development; and
The set of adopted regulation and land use changes would result in a maximum
additional development of about 3,258,000 square feet for the zoning districts
included in the Study.
The major results of the Citywide Study included:
o Zoning Regulation changes -
Four zones had their floor area ratios reduced (Service Commercial from 2:1
to 0.4:1, Neighborhood Commercial from 1:1 to 0.4:1, Office Research from
0.75:1 to 0.5:1, and General Manufacturing from 1:1 to 0.5:1);
Special provisions were added to further reduce FARs at specific sites (a
0.35:1 FAR at the Town & Country Shopping Center, a maximum addition of
65,000 square feet to the Stanford Shopping Center, and a 0.25:1 FAR for
Hoover Pavilion);
Office size limits were added to the Service Commercial and Neighborhood
Commercial zones and to Town & Country Village Shopping Center;
A Hotel (H) Combining zone was created with an FAR of 0.6:1 and applied
to the Rickey’s Hyatt and Dinah’s Motor Lodge sites;
The housing provisions in the non-residential zones were modified; and
A variety of other changes were made, including the creation of a
Neighborhood Business Service use, modifications to the noncomplying
facility provisions and elimination of three combining zones.
Comprehensive Plan Land Use Plan Map and related zoning changes -
CMR:175:96 Page 10 of 21
Five sites were redesignated from commercial to housing (Elks Club, Fiesta
Lanes, a portion of the Traynor/Hill property at E1 Camino Real and
Charleston, a property on Maybell behind 4170 E1 Camino Real and the
Mayfield School/service station/restaurant site at Page Mill Road and E1
Camino Real);
Service Commercial property on the west side of E1 Camino Real between
California Avenue and Stanford Avenues was changed to Neighborhood
Commercial;
The service station site at Arboretum and Quarry Roads was changed from
Community Commercial to Neighborhood Commercial;
The unincorporated site on Quarry Road south of Arboretum Road was
changed from Major Institution/University Lands/Academic Reserve and Open
Space to Major Institution/University Lands/Campus;
The unincorporated site on Quarry Road north of Arboretum Road was
changed from Major Institution!University Lands/Academic Reserve and Open
Space to Major Institution!University Lands/Campus Multiple Family
Residential; and
The portion of the Hewlett-Packard training center at 100 Mayfield Road that
is located in Palo Alto was changed from Regional Community Commercial
to Research Office Park.
Traffic Mitigations
Intersection capacity improvements were approved for future implementation
at 27 intersections;
A Transportation Impact Fee Ordinance was adopted for future development
in the Stanford Research Park; and
A policy to develop Transportation Demand Management programs was
approved (implementation was subsequently shifted to the County Congestion
Management Agency, then to the Bay Area Air Quality Management District,
and then eliminated by State law).
Five areas of future study were identified
CMR:175:96 Page 11 of 2t
-Urban Lane CS parcels;
-East Meadow Circle LM area;
-Commercial/Industrial/Transport area;
-395 Page Mill Road site; and
-1050 Arastradero Road site.
What is important to highlight is that the Citywide Study was not, in either the study or
implementation phases, regarded as an effort to establish a growth cap. While development
potential was evaluated for nine study areas, Planned Community zones and most
governmental facilities were excluded from the analysis. For example, the Holiday Inn site
was included on some Citywide Study maps of the Urban Lane area and excluded on other
maps. The following Table 1 was incorporated into the Citywide Study Summary Report
and identified a development potential of 34,400 square feet for the Urban Lane area. Yet,
in October 1989, the City Council approved an expansion of the Holiday Inn to add 50,270
square feet of floor area.
TABLE 1
Comparison,,,0f Commercial and Industrial Dev,elopment Potentials
Study Area
1. Downtown
2. Urban Lane
3. Midtown
4. East Bayshore
5. Southeast Palo Alto
6.South E1 Camino
Real
Central Palo Alto
Existing Square
Feet/May 1987
3,313,200
578,100
143,600
1,318,800
3,072,300
1,084,900
Development
Potential/
Previous
Zoning*
7.1,878,900 2,526,900 (6,200)
CMR:175:96 Page 12 of 21
Development
Potential/New
Zoning*
350,000
34,400
5,200
93,500
665,000
200,100
350,000
2,501,600
253,500
450,900
1,567,200
3,356,100
9.Stanford Research 9,555,700 2,906,800 1,794,100
Park/ECR
10.Sand Hill Road 3,941,300 11,401,600 121,800
Corridor
TOTAL 24,886,800 25,314,600 3,257,900
* Amount of development which could be added.
In the 1980s, the City did adopt two development caps. The first was for the California
Avenue area and established a ten year cap of 100,000 square feet. The cap was adopted in
1985 and expired last year. The second development cap is the 350,000-square-foot limit on
new floor area in the downtown. That cap was incorporated into the Zoning Ordinance in
May 1986 and does not have an expiration date.
Non-residential Development Since the Ci .tywide Study
As noted above, the Development Potential!New Zoning identified in Table 1 was based on
realistic buildout of the commercial and industrial zoning classifications that were the focus
of the Citywide Study. City staff has tracked development approvals since 1980, and the
following information is taken from that data base as updated through September 1995.
Occasionally, approved development is not implemented and time does not permit a rigorous
cross-checking of development approvals and building permits. The following information
is based on net floor area and does not include floor area that replaces demolished floor area.
The 1980 data base does not, in some cases, correspond to the nine Citywide Study Areas
and allocations need to be made. Thus the information is quite accurate, but the exact square
footage may be off by a small amount.
The following information is based on the nine Citywide Study areas and information is
divided between two time periods: May 1987 to August 1989 (the date for existing square
footage in Table 1 and the adoption of the Citywide Study) and August 1989 to September
1995.
Area 1 -- Downtown
The Downtown Area mapped in the Citywide Study includes the Palo Alto Medical
Foundation site, which was not covered by the 1986 Downtown Study and is not part
of the area that has the 350,000-square-foot development cap identified as the
remaining development potential in Table 1. The area subject to the development cap
had 26,914 additional square feet of development between May 1987 and August
1989 and 8,723 additional square feet from September 1989 to September 1995.
CMR:175:96 Page 13 of 21
The 1989 Palo Alto Medical Foundation Specific Plan would have permitted an
additional 45,000 square feet, but that area is excluded from all further analysis
because of the recent PAMF Urban Lane Campus approval.
Area 2 -- Urban Lane
The Urban Lane area had 1,307 additional square feet of floor area between May
1987 and August 1989 and 50,678 square feet between September i989 and
September 1995. Of this amount, 50,270 square feet were approved for the Holiday
Inn Planned Community zone expansion in October 1989.
Area 3 -- Midtown
No additional floor area was approved in Midtown from May 1987 to September
1995.
Area 4 -- East Bayshore
8,500 square feet of floor area was approved between May 1987 and August 1989 and
an additional 294 square feet between September 1989 and September 1995. The
predevelopment review application that the Council reviewed in 1995 for Victor
Aviation, if ultimately approved, would be outside of the zoning classifications
included in the Citywide Study.
Area 5 -- Southeast Palo Alto
112,073 square feet of additional floor area was approved between May 1987 and
August 1989, including 101,257 square feet for the then-Ford Aerospace expansion.
39,287 square feet of additional floor area was approved between September 1989
and September 1995.
Area 6 -- South E1 Camino Real
A net loss of 1,400 square feet of floor area was recorded between May 1987 and
August 1989.12,588 square feet were added between September 1989 and September
1995.
Area 7 -- Central Palo Alto
No floor area was added between May 1987 and August 1989 and 4,805 square feet
of floor area was added between September 1989 and September 1995.
CMR: 175:96 Page !4 of 21
Area 8 -- Stanford Research Park and E1 Camino Real
7,614 square feet of additional floor area was approved between May 1987 and
August 1989. Between September 1989 and September 1995, 491,146 square feet of
floor area was approved. Of this area, the 162,540-square-foot addition to the
Veteran’s Administration Hospital and the 75,980-square-foot development of 1050
Arastradero were outside the framework of the Citywide Study. Of the remaining
252,626 square feet, the bulk was in three projects approved between June 1990 and
April 1991 (114,000 square feet at 3400 Hillview, 30,775 square feet at 1681 Page
Mill and 46,000 square feet at 3500 Deer Creek).
Area 9 -- Sand Hill Road Corridor
10,616 square feet of floor area was approved between May 1987 and August 1989
and 127,898 square feet between September 1989 and September 1995. The 127,898
square feet include 13,391 square feet at the Stanford Shopping Center, a 73,100-
square-foot Stanford Medical Center clinic building approved in 1991, and a 30,000
square foot addition to Children’s Health Council approved in 1995.
The following table summarizes the above information:
TABLE 2
Ci ..tywide Study Area Development, May 1987. to June 1995
Ar~a
I.Downtown
2.Urban Lane
3.Midtown
4.East Bayshore
5. Southeast Palo
Alto
6. South E1
Camino
Development
Potential after
Citywide
Study
350,000
34,400
5,200
93,500
665,000
May 1987 to
August 1989
Increases in
September
1989 to
September
1995 Increases
Increases in
Floor Area
Outside Scope
of Citywide
Floor Area
26,914
1,307
0
8,500
112,073
in Floor Area
8,723
408
0
294
39,289
Study
0(1)
50,270(-’~
0
0
0
Total Net
Increases in
Floor Area,,
May 1987 to
September
1995
35,637
51,985
0
8,794
151,362
200,100 (1,400)12,588 0 11,188
CMR:175:96 Page 15 of 21
Area
7.Central Palo
Alto
Stanford
Research Park/
ECR
Development
Potential after
Citywide
Study
(6,200)
1,794,100
May1987 to
August 1989
Increases in
Floor Area
0
7,614
September
1989 to
September
1995 Increases
in Floor Area
4,865
252,626
Increases in
Floor Area
Outside Scope
of Citywide
Study
238,520(3)
Total Net
Increases in
Floor Area,
May 1987 to
September
1995
4,865
498,760
9. Sand Hill Road 121,800 10,616 127,898 0 138,514
Corridor
TOTAL 3,257,900 165,624 451,112 288,790 905,526
Does not include the 1989/90 PAMF Specific Plan.
Holiday Inn Planned Community Zone.
VA Hospital (162,540) and 1050 Arastradero Road (75,980).
Differences Between the Citywide Study and
Draft Comprehensive Plan Goals. Policies and Programs
Overall Comparison - The Draft Comprehensive Plan goals, policies and programs, to a very
considerable degree, are consistent with the objectives and general results of the Citywide
Study. Both documents seek to limit non-residential development and control the growth in
traffic. Both documents encourage development of more housing, including use of non-
residential land for residential use. Both documents recognize the need for limited
intersection improvements and agree that the City cannot build itself out of existing and
future congestion.
There are, however, subtle but important differences between the 1989 Citywide Study and
1996 planning policies. In 1996, there is greater understanding that Palo Alto exists in a very
competitive commercial and industrial environment. Just because land is located in Palo
Alto does not ensure economic success. There is also a notable difference between the
expected handling of follow-up studies in 1996 versus 1989. The coordinated area planning
concept envisions greater public participation, with much more emphasis on economics and
receptivity to regulations that include three-dimensional representations of desired new
development, rather than reliance on traditional zoning tools. Follow-up studies are to be
conducted with greater receptivity to the need for, value of, and economic requirements of
physical change. The hope is that by combining extensive and intensive public participation,
economic and planning expertise and more visually understandable regulations, ways can be
CMR: 175:96 Page 16 of 21
found to rejuvenate and redevelop areas that are experiencing significant economic and
physical problems. Thus, there is more receptivity to potential physical change in 1996 than
1989 and a recognition that upgrading parts of the community may need to involve changing
City land use regulations, including the possibility of.. in selective locations, some increases
in development intensity. Finally, there is greater awareness in 1996 than 1989 of the value
to the City (and School District) revenue base of certain types of economic activities.
Area-Specific Comparison -- The following commentary on the nine Citywide Study areas
highlights the differences between the Citywide Study and the Draft Comprehensive Plan
goals, policies and programs.
Area 1 -- Downtown. Both the Citywide Study and Draft Plan incorporate the 1986
Downtown Study development caps. The Citywide Study did not address the Palo Alto
Medical Foundation, even though preparation of the PAMF Specific Plan overlapped the
main part of the Citywide Study. The Draft Plan (and recently amended PAMF
Development Agreement) calls for a coordinated area plan for the PAMF/SOFA area.
Area 2 -- Urban Lane. The 1989 approval of the Holiday Inn expansion was not part of the
Citywide Study. The recent PAMF Urban Lane Campus approval goes beyond the additional
floor area identified in the Citywide Study. Finally, the Draft Plan includes a future area
study for the University Avenue Multi-modal Transit Center (i.e., Dream Team) area.
Area 3 -- Midtown. The Citywide Study envisioned very minimal changes in the amount of
commercial floor area in Midtown. It is still too early to tell to what extent the current
Midtown Study will consider changes to floor area ratios.
Area 4 -- East Bavshore. There are no differences between the Citywide Study and Draft
Comprehensive Plan treatment of the East Bayshore/Embarcadero Road area.
Area 5 -- Southeast Palo Alto. The only possible difference between the Citywide Study and
Draft Comprehensive Plan treatment of this area is the yet to be resolved land use
designation of the Spanger School site..
Area 6-- South E1 Camino Real. El Camino Real from Charleston Road north to Curmer
Avenue is identified as a future study area in the Draft Comprehensive Plan. The Citywide
Study identified 200,000 more square feet of non-residential floor area for South E1 Camino
Real.
Area 7 -- Central Palo Alto. The Citywide Study assumed the 100,000-square-foot floor area
cap for the California Avenue Area. However, this cap expired in 1995. The Draft Plan calls
for adjusting downward the California Avenue Area zoning, which may result in it being
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compatible with the Citywide Study. The Citywide Study assumed the closure of the former
Maximart site by 2000. The Draft Plan calls for an area study of the Cal-Ventura area
bounded by Page Mill Road, E1 Camino Real, the residential area south of Lambert and the
railroad tracks.
Area 8 -- Stanford Research Park and Adjacent E1 Camino Real. The Research Park’s floor
area is the same in the Citywide Study and the Draft Plan. The major potential difference is
the land use designation of the vacant site at Page Mill Road and E1 Camino Real.
Area 9 -- Sand Hill Corridor. The Citywide Study implicitly assumed residential reuse of the
former Children’s Hospital site and did not acknowledge that the Children’s Health Council
(which had a 30,000 square foot expansion approved in 1995) and the Ronald McDonald
House are not part of the former Children’s Hospital site. The current set of Sand Hill
Corridor development applications includes more floor area at the Stanford Shopping Center
than was incorporated into the Citywide Study.
In summary, only one or two of the nine Citywide study areas are not considered for some
type of non-residential land use change, either directly in the Comprehensive Plan or as part
of follow-up studies identified in the Plan. While the overall objectives of the Citywide
Study are incorporated into the Draft Plan, there is the likelihood of notable detailed changes.
Conclusion
The Citywide Study was an important summation of the numerous planning studies that were
undertaken by the City in the 1980s. As such, the Study serves as an important set of
modifications to the current Comprehensive Plan and a key element in setting the stage for
the current Comprehensive Plan effort. The objectives and broad results of the Study should
not be lost. However, the next Comprehensive Plan would not well serve the community if
the details of the Study were continued in the new Plan as a narrow limit on future flexibility.
Therefore, staff recommends recognition in the Draft Comprehensive Plan of the policy
intent and value of the Citywide Study without incorporation of the Study’s detailed zoning
limits and restrictions.
Recommendation
Recognize in the Draft Comprehensive Plan the policy intent and value of the Citywide
Study. The Citywide Study, as a policy document, fits very well within the Draft
Comprehensive Plan. As noted earlier, the four objectives of the Citywide Study are
consistent with the Draft Plan.
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Reduce future commercial and industrial development potential to minimize
deteriorating traffic conditions;
2.Preserve existing businesses;
Encourage desirable uses such as housing by identifying commercial and
industrial sites or areas suitable for mixed-use or housing projects; and
Identify appropriate traffic mitigations in major employment areas and
necessary physical traffic improvements.
The Draft Plan should recognize the importance of the Citywide Study, by acknowledging
the Study’s objectives and importance of the zoning and other actions taken in 1989. The
Draft Plan should include the following Policy and supporting Plan text that indicates that
consideration of changes to the specific features of the Citywide Study needs to include
evaluation of the benefits to be gained from the change.
Policy: In evaluating potential increases in nonresidential growth limits, consider the
objectives of the 1989 Citywide Land Use and Transportation Study.
ALTERNATIVES
Alternative ways of addressing the Citywide Study in the Draft Comprehensive Plan include:
1.Establish a citywide non-residential growth cap.
As identified in Table 1, the Citywide Study identified a future development potential
of 3,257,900 square feet of floor area for the zoning districts incorporated into the
Study. As noted before, there are various developments (e.g., City facilities, VA
Hospital, Planned Community zones such as the Holiday Inn) that were not included
in the Citywide Study. If a City growth cap was to be established, immediate
questions include:
What is the start date for counting development toward the cap? Alternatives
include May 1987, as cited in Table 1, and August 1989, when the Study was
adopted.
What development counts toward the cap? Alternatives include all non-
residential development, non-residential development within certain areas
(remembering that the nine study areas are defined differently on different
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Citywide Study maps), or non-residential development within the zoning
districts analyzed in the Citywide Study.
Establish sub-area growth caps.
The only area in Palo Alto that has a growth cap is the downtown. Based on the
Citywide Study, growth caps could be established for other areas. Numerous
problems would need to be addressed, including Urban Lane, where approved
development exceeds the Citywide Study, and Midtown, where the small amount of
additional growth may be incompatible with efforts to rejuvenate the area. Further,
the growth caps may or may not be compatible with the intent of area studies such as
Cal-Ventura, where the Citywide Study assumed removal of the former Maximart
site’s commercial uses by 2000, or for the University Avenue Multi-modal Transit
Station area, which is outside of a Citywide Study Area. The questions addressed
under Alternative 1 would also have to be answered for this alternative.
o Maintain the zoning restrictions incorporated into the Citywide Study.
This alternative would make it more difficult to adjust floor area ratios if deemed
important as part of future area studies. Further, some of the use restrictions (i.e.,
office limits) may prove to be undesirable. This approach would also tend to lock into
place selective elements of particular zone districts (e.g., office and other commercial
size limits. Another question is whether the site-specific zoning changes made in the
Citywide Study would be maintained or open to change.
FISCAL IMPACT
To the extent that the alternative of translating the Citywide Study into specific area
development caps could restrict future efforts to revitalize some areas, the issues raised in
this staff report could have fiscal impacts. The issue of Fiscal Impact will be addressed when
the Draft Comprehensive Plan is prepared.
ENVIRONMENTAL ASSESSMENT
The Draft Comprehensive Plan will be the subject of an Environmental Impact Report. The
issues before the Policy and Services Committee involve identification of policies and
programs for inclusion into the Draft Plan. As such, no environmental review or findings are
necessary at this time.
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STEPS FOLLOWING APPROVAL
The Policy and Services Committee recommendations, after review and action by the City
Council, will become part of the Draft Comprehensive Plan. The Draft Plan is tentatively
scheduled for publication and distribution by September 1996. Extensive public review will
follow release of the Draft Plan, including public hearings by the Planning Commission and
City Council.
CC:Planning Commission
CPAC
Speakers at February 7, 1996 City Council Meeting
Robin Bayer
Herb Borock
Lynn Chiapella
Pria Graves
Yoriko Kishimoto
Bill Peterson
Ed Power
Emily Renzel
Susie Richardson
Joseph Violette
Stanford University
Stanford Management Company
Chamber of Commerce
Denny Petrosian
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