HomeMy WebLinkAboutStaff Report 397-09City of Palo Alto
City Manager's Report
TO: HONORABLE CITY COUNCIL
FROM: CITY MANAGER
DATE: OCTOBER 5,2009
REPORT TYPE: INFORMATIONAL
DEPARTMENT: PLANNING AND
COMMUNITY ENVIRONMENT
CMR: 397:09
SUBJECT: Status Report on Comprehensive Plan Amendment and Housing
Element
This is an informational report only and no Council action is required.
PURPOSE
The purpose of this report is to update the City Council on the status of the progress in completing
the work program for the Comprehensive Plan Amendment and Housing Element.
BACKGROUND
The City Council initiated the Comprehensive Plan Amendment process in 2006 with approval ofa
Colleague's Memo that outlined the general parameters of the work program. Funding for the
project was allocated in 2007 and a consultant team selected in 2008. At a joint study session with
the Planning and Transportation Commission (PTC) held on July 28, 2008, City Council reviewed
the final work program (Attachment A). The focus of the amendment is to ensure that sufficient
public services are available to serve new housing development, that sufficient land for
neighborh~92:~serving retail uses is retained, that impacts of increased housing on public services
such as parks, libraries and schools are mitigated and that the City's commitment to climate
protection is addressed. The work program also identified the development of Concept Plans for the
East Meadow Circle/Fabian Way/ West Bayshore area and the California Avenue area including the
existing ,Fry's Electronics site and adjacent properties. Both areas have experienced SOlne change
over the past several years and will be studied to determine future land uses for inclusion in the
runended Comprehensive Plan.
DISCUSSION
This repoft is intended to bring the Council up to date regarding the work that staff and the
consultant team have completed over the last year and provide an overview of the work anticipated
to be completed in the next several months. The Comprehensive Plan amendment consultant and
staff have compiled considerable background information for the amendment process and the
Housing Element, including;
CMR: 397:09 Page 1 of6
a) Background Papers
b) Analysis and Community Outreach for the Draft East Meadow Circle and California
Avenue Concept Plan Areas
c) Review of existing Vision Statements, Policies, and Programs
d) Housing issues, policies, and strategies through meetings with the Housing Element
Technical Advisory Group
e) Housing Element Background Report
Background Papers
The Planning and Transportation Commission (PTC) discussed in three study sessions from October
2008 through January 2009 the preliminary growth projections that were then used to prepare retail
and fiscal modeling background papers. In May 2009, the PTC discussed the Retail and Fiscal
background papers at one meeting; later that month the PTC discussed the Community Services and
Sustainability background papers. These four documents were prepared to identify existing
conditions that will serve as background information for updating the existing setting in chapters of
the Comprehensive Plan and sections of the Environmental Impact Report (EIR). The Community
Services and Sustainability background papers were revised to include PTC comments made during
a study session on May 27, 2009 and are now posted online at
http://www.paloaltocompplan2020.org/ along with the Retail and Fiscal background papers.
Concept Plan Areas
The Comprehensive Plan Amendment consultant and staff have gathered background information for
the East Meadow Circle and California Avenue Concept Plan areas, held two neighborhood
workshops for each concept plan area, and conducted several stakeholder meetings and interviews.
A third and final meeting for the East Meadow Circle/San Antonio area was held in the
neighborhood on September 16, 2009 to discuss with the community a preferred overall land use
development scenario for the area. There was general public support expressed at the meeting for the
concepts identified in the preferred alternative. This alternative will be forwarded to the Planning
and Transportation Commission and City Council in the fall. Potential land use scenarios for the
California Avenue area will be developed at a third workshop to be held in the fall.
Existing Vision Statements, Policies, and Programs
Staff has been reviewing the Comprehensive Plan since last year to compile information regarding
the status and applicability of all of the existing policies and programs in each chapter of the
Comprehensive Plan. Each City department charged with leading the implementation of specific
policies and programs has provided input on their continued applicabilitY,and staffis collating that
information for review with the PTC beginning in October. Staffhas also discussed with the PTC
the major themes and vision statements of the existing Comprehensive Plan during two separate
meetings in order for the Commission to understand the overall vision of the plan and the
interrelationship of the individual plan chapters and that vision.
r
Housing Element Technical Advisory Group
Over the past year considerable progress has been made on updating the Housing Element. Staffhas
developed a work program that was discussed with the PTC, key housing issues for the update have
been preliminarily identified and strategies for citizen participation have been developed. An ad hoc
Housing Element Technical Advisory Group (TAG) was formed by the Planning and Community
CMR: 397:09 Page 2 of6
Environment Director last year to enable ongoing public involvement in the Housing Element
process. The TAG members are a diverse group representing stakeholders and organizations
concerned about housing growth and policy_ The TAG's primary role is to advise Planning staff on
housing issues and policies and to evaluate proposed strategies and program and the impacts of
various housing types and locations. The PTC made suggestions for composition of the TAG to
ensUre that persons with diverse views and backgrounds would be participating. The Planning and
Community Environment Director subsequently appointed the members of the TAG.
The first introductory TAG meeting was held last November and then monthly meetings were held
from January through June and resumed in September after a summer break. Topics that the TAG
has discussed include: Housing Element content required by the State, local housing issues, needs,
and strategies, review of current Housing Element's policies and programs, the City's Below Market
Rate (BMR) program and proposals from the BMR study; programs for the protection of existing
housing including rental units and historic housing, strategies to encourage development of smaller
units and housing near transit, services and amenities, locations where more density could be
appropriate and how to link density to smaller unit sizes, appropriate parking standards and the
relationship with housing affordability, how to meet the need for senior housing and initial site
selection criteria for the housing site inventory that is a required part of a Housing Element.
Housing Element Backgro.und Report
Staff work on the HousingE:lement has focused on updating the population, household and housing
data required for the Housing Element and evaluation of the effectiveness of the current plan's
programs and policies. Staff has begun identifying potential properties to place on the Housing
Sites Inventory that are suitable for either commercial/residential mixed use or various types of
residential development using input from the TAG on criteria for housing sites.
PTCREVIEW
The PTC will be discussing maj or components of the Comprehensive Plan Amendment throughout
the remainder of this year and next year as regular agenda items, including the following:
• Vision Statements, Goals, Policies and Programs for each chapter of the plan
• Land use alternatives for the two Concept Plan areas
• Draft Housing Element
Comprehensive Plan Chapters
In addition to the policies and programs, the vision and goals for each chapter will be reviewed by
the PTC during over the next six months. As the update process proceeds, new policies and programs
are anticipated to be proposed for various chapters; however, this first phase is intended to
concentrate on the viability of the existing document. The PTC will also be meeting in a j oint study
session with the City Council early next year (2010) to discuss the relevance and applicability of the
overall vision as well as the individual chapter vision statements of the existing Comprehensive Plan.
The joint study session should provide further guidance to the PTC for the next phase of the update
process which will focus on developing new policies and programs to support the Comprehensive
Plan work program.
CMR: 397:09 Page 3 of6
It is anticipated that the PTC will be reviewing the six Comprehensive Plan chapters at a rate of one
chapter per month beginning in the fall of 2009. The PTC review of the chapters during this first
phase will focus on the relevance and clarity of the existing policies and implementing programs to
continue to accomplish the plan's vision and goals. As mentioned previously, this review by the PTC
will be a review of the existing document; subsequently, further modifications to the Comprehensive
Plan will be proposed through the update process to incorporate new policies and programs from the
work program that focus on restricting conversion of non-residential land, limiting loss of retail
serving uses, strengthening provision of services and incorporating sustainability concepts. In
addition, specific policies regarding each of the two concept plan areas will be incorporated in the
plan.
Concept Plan Areas
The development of the two Concept Plans is anticipated to be completed by early 2010. Land use
alternatives for both the East Meadow Circle and Cal Avenue Concept Plan areas will be presented
to the PTC this winter. Staff anticipates the PTC's preferred land use alternative will be forwarded
to the City Council in early 2010. The land use concept plan for each area that is supported by the
City Council will then be analyzed in the Environmental Impact Report anticipated to be completed
in 2012 and incorporated in the draft Comprehensive Plan amendment.
Housing Element
Attachment B is an updated schedule for completion of a draft 2007-2014 Housing Element and
submit to the State for its initial review. To encourage broad participation, two community-wide
meetings will be held in early 201 0 to gather input from the general public on housing issues, goals,
and policies and programs. Staff will also convene a focus group, consisting of housing developers,
commercial "mixed-use" developers, architects and other housing development professionals, to
discuss the effectiveness of existing and proposed programs. The PTC will review key sections of
the Housing Element as they are prepared. The PTC will also review the list of possible sites to
place on the Housing Inventory and hold a j oint session with the City Council to discuss and refine
the Housing Inventory that will be included in the Draft Housing Element. This process will
facilitate full PTC discussion of key issues and proposed policies and programs prior to the
completed draft document coming to the PTC for its final review and transmittal to Council and
allow ongoing opportunities for public comment. At this time, staff anticipates that Council will
review the draft Housing Element in the summer of 2010, which would then be forwarded to the
state for an initial review for compliance with state regulations. The Comprehensive Plan EIR will
then analyze impacts of new housing growth citywide specified in the draft Housing Element.
Currently, it is anticipated the Comprehensive Plan EIR will be completed in2012 since the Council
extended the update process by a year during this year's budget process. The state required the City
to submit an adopted Housing Element that complies with state regulations by June 30, 2009 for the
current planning period.
NEXT STEPS
The work}program for the Comprehensive Plan amendment has been revised to incorporate the
extended timeframe approved by the City Council in June for its completion (Attachment C). The
PTC will be meeting in a joint session with the City Council early next year to discuss the relevance
and applicability of the overall vision of the existing Comprehensive Plan as well as the individual
chapter vision statements including the Housing Element vision statement. Another joint session
CMR: 397:09 Page 4 of6
with PTC and the City Council will also be scheduled in spring of2010 focusing on reviewing the
Housing Sites Inventory.
Citywide Community Workshops
The City will sponsor at least three citywide community workshops to engage the public in the
amendment process by presenting information regarding the vision of the Comprehensive Plan, the
fundamentals of sustainable growth and the availability of City services to accommodate future
growth. In addition, as mentioned above, the City will hold two workshops on the Housing Element.
These citywide community workshops will begin early 2010 and extend throughout the year.
Speaker Series
In addition to the community workshops, staff will be sponsoring a speaker series over the next year
inviting various experts in land use planning, transportation, and urban design to provide insight and
guidance to both decision makers and the public prior to completion of the Comprehensive Plan
amendment. The presentations will include such topics as recent state legislation regarding climate
change, smart growth principles, urban design, and land use and transportation linkages. The first
will be held in early November and will be a presentation by MTC/ ABAG staff on the importance of
planning for "sustainable development," particularly related to SB375 which establishes a process for
the California Air Resources Board to implement the State's global warming legislation (Assembly
Bill 32) for the transportation sector and sets regional greenhouse gas targets for emissions
associated with the automobile and light truck sector.
Draft Comprehensive Plan Amendment! EIR
As previously discussed, the PTC will play an active role in reviewing and modifying the draft
changes to the policies and programs in the current Comprehensive Plan consistent with the work
plan. Sustainability goals, policies and programs will be added to each chapter as appropriate. Policy
or program changes resulting from the two area studies will also be incorporated. New goals,
policies, and implementing programs required by recent changes in State law including Assembly
Bill 32 related to global warming and Assembly Bill 162 related to flooding will also be incorporated
into the Comprehensive Plan Amendment. The PTC will also review possible growth scenarios and
meet with the City Council at a joint session to solidify the growth assumptions to be analyzed in the
Draft EIR. Staff anticipates PTC and Council review of the Draft Comprehensive Plan Amendment
and Draft EIR in late 2011. The Comprehensive Plan Amendment, including changes to the Housing
Element, is scheduled to be adopted by Council in June 2012.
POLICY IMPLICATIONS
Although this informational report will result in no policy decision, the Comprehensive Plan
amendment process enables the Comprehensive Plan to be updated to focus on current City policy
and to adequately reflect the City's vision consistent with or modified from the goals of the existing
Comprehensive Plan. The updated plan is intended to provide an effective guide for future growth in
the City. f"
I
RESOURCE IMPACTS
There are no fiscal impacts resulting from this report. The Council approved a budget of$850,000 in
April 2008 for the amendment process. The City Council's adoption of the 2010 budget extended
the Comprehensive Plan Amendment work schedule by one year since it decreased the
CMR: 397:09 Page 5 of6
Comprehensive Plan Amendment budget by $75,000 for fiscal years 2009/2010 and 2010/2011.
Staff expects to complete the Comprehensive Plan Amendment work program within the current
staffing structure and revised budget. .
ENVIRONMENTAL REVIEW
This report to the City Council is not considered a project pursuant to Section 21065 of the
California Environmental Quality Act.
PREPARED BY:
DEPARTMENT HEAD:
Director of Planning and Community Environment
CITY MANAGER APPROVAL:
ATTACHMENTS
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JAME8KEENE
City Jy.fa9iger
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Attachment A: Comprehensive Plan Work Program
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Attachment B:
Attachment C:
Housing Element Update Schedule and Key Milestones
Comprehensive Plan Amendment 2020: Schedule and Key Milestones
I'
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CMR: 397:09 Page 6 of6
Comprehensive Plan Amendment
Work Plan
1. Update Base Conditions and Growth Projections
ATTACHMENT A
• Incorporate recent planning studies/new data into base conditions
• Identify a realistic growth rate for development through 2020
2. Amend Land Use Map and Land Use Designations
• Prepare land use evaluation for East Meadow CirclelFabian Way/ West Bayshore
area; identify land use and zoning changes
• Prepare land use evaluation for existing Fry's Electronics site and adjacent
properties: identify land use and zoning changes
• Evaluate existing definitions for non-residential land use designations and
determine if housing should be restricted or disallowed under those designations
3. Review Pertinent Policies and Programs
• Scan all programs for relevance and clarity
• Focus on policies that allow conversion of non-residential land to residential uses
• Add or strengthen policies that limit the loss of retail serving uses
• Incorporate policies and programs addressing or strengthening provision of
services where applicable
• Incorporate Sustainability Goal with relevant policies and programs from City's
Climate Protection Plan underscoring City's commitment to reduce global
warmIng
• Identify general areas for new parks and community facilities
• Enhance and integrate a pattern of walkable neighborhoods
• Update Housing Sites Inventory/Housing Element
• Develop policy regarding design standards for private streets
"4. Environmental Analysis
• Prepare Environmental Impact Report for amendment
• Provide thorough analysis of service needs to schools;parks and libraries
resulting from project growth through 2020
• Integrate CEQA significance thresholds used in EIR in appendix to
Comprehensive Plan amendment
I' I
October 2009
HOUSING ELEMENT UPDATE
SCHEDULE & KEY MILESTONES
Key Tasks & Milestones 2009
Community Involvement & Outreach:
Technical Advisory Group (TAG) Meetings January -June
0 Usually held monthly September-
November
Housing Developer I Professionals Focus Group October 0 2 meetings planned
Community Workshops:
0 Review Needs, Key Issues; Goals & Policies September
0 Review New Draft Policies & Programs, November
Planning & Transportation Commission
Review: .'.
0 Housing Needs, Key Issues October
0 Goals, Policy & Program Review; Mtg. #1 December
0 Goals, Policy & Program Review; Mtg. #2
Housing Site Inventory (2 meetings)
0 Criteria for Site Selection
0 Review of Sites
0 Review Draft Housing Element (for submittal
to the State)
0 Review of State's Comments on Draft
Housing Element (if necessary)
City Council Review & Action:
0 Council Study Session
0 Review of Draft Housing Element
0 Direction to Submit Housing Element to
State
0 Review of State's Comments on Draft
Housing Element (if necessary)
October 2009
ATTACHMENT B
2010
January -
March
February
.
January
February
March
May
September
January
June
September
Concept Plan
Neighborhood
Workshops
(at least 3 for each Concept
Plan Area)
Citywide Community
Workshops
(at least 3)
Growth Assumptions
(PTC Public Hearings)
Draft Comprehensive
Plan Amendment I DEIR
(PTC Public Hearings)
Final Comprehensive
Plan and EIR .
(PTC Public Hearings)
Review Work Scope,
Work Program,
Background Reports
Review Programs and
Policies
Concept Plan Area Land
Use Alternatives
Growth Assumptions
Draft Comprehensive
Plan Amendment I DEIR
Final Comprehensive
Plan and EIR
Review Work Scope and
Work Program
Concept Plan Area Land
Use Alternatives
Growth Assumptions
I
Draft Comprehensive
Plan Amendment I DEIR
Final Comprehensive
Plan and EIR
October 2009
ATTACHMENT C
COMPREHENSIVE PLAN AMENDMENT 2020
SCHEDULE & KEY MILESTONES
January -
November
January -June
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2008 0 2009 . I~":"\' 2010
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July -December January -July
July
September -
December
October -
December
January -
March
January -
February
January -March
October -
December
' .. " ... . ... ,:. > .. ·:'.l'::
2011
'.
January -March
October -
December
March
October -
December
January -June
January -June
January -June