HomeMy WebLinkAboutStaff Report 443-09TO: HONORABLE CITY COUNCIL
FROM: CITY MANAGER
DATE: DECEMBER 14, 2009
REPORT TYPE: ACTION
DEPARTMENT: PLANNING AND
COMMUNITY ENVIRONMENT
CMR: 443:09
SUBJECT: Approval of (1) a Mitigated Negative Declaration; (2) a Record of Land Use
Action; (3)a Site and Design Review application for the demolition of three
buildings (including Palo Alto Bowl and Motel 6) and the construction of a
four-story building containing 167 hotel guestrooms, and 26 three-story
residential townhomes on a site comprised of four parcels of land zoned R-1,
RM-15 and CS; and (4) a Tentative Map merging the four parcels into a 3.62
acre parcel for condominium subdivision into a hotel unit and 26 residential
units, located at 4301 and 4329 EI Camino Real.
EXECUTIVE SUMMARY
The proposed project is a mixed use redevelopment of a 3.62 acre site comprised of four lots
having multiple zone districts to build a four story hotel and three-story ,residential
condominiunls, including four affordable units. The Homewood Suites hotel and residences
would replace the Palo Alto Bowl, Motel 6 and a commercial services building. The proposed
land uses and design are in compliance with the site's three existing zone regulations and
Comprehensive Plan land use designation. The four lots are to be merged into one parcel for
subdivision into condominium units, pursuant to the City and State subdivision regulations. The
project includes the provision of a bicycle/pedestrian path and easement along the eastern edge
of the site, COl meeting Monroe Drive to Cesano Court, for improved access to a signalized
intersection on El Camino Real. Vehicle access to the hotel would be from El Camino Real,
while the residential units would be accessed from Monroe Drive via a new private street, Ryan
Lane, leading to the motor courts. The project has been reviewed and recommended by the
Planning and Transportation Commission (PTC) and Architectural Review Board (ARB) in five
public hearings, as well as by the community in several outreach meetings conducted by
Steinberg Group Architects on behalf of the applicant, Barry Swenson Builders, and the owner,
Palo Alto Bowl LLC.
RECOMMENDATION
Staff, the Planning and Transportation Commission, and the Architectural Review Board
recommend that the City Council:
1. Adopt the Mitigated Negative Declaration (Attachment H).
CMR: 443:09 Page lof6
2. Approve the Record of Land Use Action approving a Site and Design Review and Tentative
Map application to allow the construction of a new mixed use project including one four-
story, 167-unit hotel and 26 three-story detached and duplex-type condominium units located
at 4301-4329 El Camino Real subject to the findings and conditions of approval contained in
the Record of Land Use Action (Attachment A).
BACKGROITND
The project is located at 4301 and 4329 El Camino Real, on four parcels at the southeast comer
at the intersection of El Camino Real and Monroe Drive (Attachnlent B). The site consists of
multiple zoning designations: Service Commercial (CS), Multi-Family Residential (RM-15) and
Single-Family Residential (R -1 ). The Comprehensive Plan map designation is Service
Commercial. The site is located in the Los Altos School District. The 3.62 acre site's
surrounding uses are described in background section of Attachment C. Motel 6 is on the
northerly 51,401 square foot (sf) parcel, which also includes a small commercial building and
together, these buildings occupy 29,304 sf of floor area. PlalUling department staff has
determined that the Palo Alto Bowl building is not a historic resource. Generally, to be
evaluated as an historic resource a property would need to be at least 50 years old, have
architectural significance, or known association with a significant person or historical event.
There was no information available that indicated the property would qualify as a historic
resource. The Palo Alto Bowl building, including the restaurant, is 30,459 sf of floor area on lot
having an area of approximately 94,525 sf. The renlainder of the site is in use as a parking area
for Palo Alto Bowl, and vacant land (the R-1 zoned lot). Vehicular access to all uses on the site
is currently from El Camino Real. There are mUltiple protected trees on the site including both
street trees and on-site oaks and redwoods.
The project is subject to review and action by the City Council because residential and
nonresidential mixed use projects proposed within the CS zone district and having four or nlore
residential units are subject to Site and Design Review approval upon recommendation by the
PlalUling and Transportation Commission and Architectural Review Board. In addition, the City
Council must review and act on the Tentative Map for Condominium Purposes, since the number
of resulting condominium units exceeding four units (26 residential units and one hotel unit, with
associated common areas).
PROJECT DESCRIPTION
The project at 4301 and 4329 El Camino Real includes the demolition of 64,263 square feet of
existing commercial development floor area and construction of a mixed use development
having 179,594 sf of new floor area including one four-story, 167-unit hotel and 26 three-story
detached and duplex-type condominium units. Four of the residential units would be affordable
to home buyers have moderate incomes (80% to 120% of the area median income). The hotel
will be located along the southwestern edge of the site facing El Camino Real on the CS zoned
portion of the site. The residential portion of the project will be located directly behind the hotel
on the rear half of the lot along the northern and eastern property lines. The site planning for the
project is consistent with area. The hotel is located along El Camino Real and is consistent with
similar uses in the area and the 26 residences in the rear half of the lot provide transition to the
fl,djacent R-1 properties.
The hotel will be owned by Hilton and operated as a Homewood Suites. The hotel will be four-
stories with a maximum height of 47'6" above grade, which is lower than the 50' maximum
allowed height limit. The hotel would consist of 167 guest rooms with a ground level reception
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area, meeting rooms and a dining area. The dining area is for hotel guests only and will serve
catered meals only. The area that will conlprise the 167 -hotel units totals 62,609 square feet.
The hotel, including the rooms and other facilities would total 125,034 square feet for a total
floor area ratio (FAR) of2.0 on its portion of the site, the maximum allowable FAR for hotels in
the CS zone district.
A total of 172 parking spaces are proposed for the hotel. Of those, 158 spaces will be provided in
a one-level underground garage and 14 spaces will be provided at ground level. Vehicular access
for hotel guests and employees will be limited to El Camino Real. Additional vehicular access
for the residential portion of the project is proposed from Monroe Drive. No hotel vehicles will
be permitted to access the site from Monroe Drive, except for emergency vehicles. An elevator
and stairway would provide access from the parking garage to all hotel levels. The hotel design
includes a generous courtyard that would be built around a large existing oak tree. The project
includes the preservation of the mature oak tree in the courtyard, and a modification of the hotel
building during the ARB review process provided the necessary solar access for this tree.
Another mature oak tree located in the center of the proposed residential development will be
transplanted along the southeastern edge of the public pedestrian and bicycle path. Eight street
trees along El Camino Real (six London Planes, one Gingko, and one Scarlet Oak) would be
. removed and replaced with twelve London Plane trees. In addition two Coast Live Oak trees
would be added to each side of the hotel entry along El Camino Real. Five oaks and two
redwood street trees on Monroe would be retained, while seven street trees along Monroe (one
Pear tree, three Myoporum trees, one Tree of Heaven, one Oak tree and one Redwood tree)
would be removed. The 14" oak (tree #17) is disfigured and is located where the Ryan Court
driveway is proposed and a new 96" box valley oak tree will be located near the hotel entry as
replacement. The 22" redwood (tree #24) is in poor condition and is located where the bike path
is proposed and will be replaced with an 84" box specimen tree (Parrotia Persica) at the comer of
the property.
The residential portion of the project will consist of 26 three-story detached and duplex style
ownership condominium units. The residences would have a height of 31 '3" from grade. Ten
detached single family units and eight two-unit attached duplex type residences are proposed.
The 26 units range from 2,068 to 2,167 square feet in size, including garages. An agreement with
the City has been signed, subject to project approval, for four of these units to be sold to
moderate income home buyers. Each unit would provide open space areas consisting of ground
level patios and second and third floor balconies. In addition to the private open space areas
provided to each unit, a common open space area would be provided adjacent to the hotel garden
area. An eight foot solid wall separates the common open space area from the hotel community
garden area. The common open space area includes amenities such as picnic tables and barbeque
grills.
PedestrianlBicycle Path
The project includes the creation of a public pedestrian and bicycle path easement located at the
rear of the site. The connection would enable movement between Monroe Drive and Cesano
Court along the eastern edge of the property. The connection would provide an alternative path
of travel that is safer than the existing path of travel along E1 Camino Real, particularly for
children traveling across El Camino Real to school. The easement would connect on the eastern
edge of the project, which is the only possible location because the bicycle and pedestrian
easement will need to connect to an existing public easement, created when the neighboring
Cesano Court Planned Community (pC-3036) was established.
CMR: 443:09 Page 3 of6
Site Access
Vehicular access to the site will be provided using two main entries. Access to the residential
portion of the site would be provided along Monroe Drive. Access to the hotel portion of the
project would be provided at a right-inlright-out only driveway along El Camino Real.
Vehicular circulation will be restricted between the residential and hotel uses. This would
encourage hotel guest and employees to enter and exit the site from El Camino Real only and not
to travel through the Monroe Drive Neighborhood. Access would be provided between the sites
for emergency purposes only. Proposed improvements to the Monroe Drive frontage include a
narrowing of the street width. This would provide two purposes: (1) to allow appropriate width
to construct a sidewalk and (2) serve as a traffic calming measure into the existing residential
neighborhood.
BOARD/COMMISSION REVIEW AND RECOMMENDATIONS
Planning and Transportation Commission (PTC) Review
The project was reviewed by the PTC on June 10, 2009 to ensure compatibility with the Site and
. Design Review approval findings of Section 18.30(G).060 of the Palo Alto Municipal Code
(P AMC) and on November 18, 2009 in compliance with the City and State Subdivision
regulations. The PTC staffreports and meeting minutes are available on the City's website. The
PTC voted 5 to 1 (Commissioner Holman opposed, Commissioner Feinberg absent) to
recommend City Council approval of the Mitigated Negative Declaration, Site and Design
Review on June 10, 2009, with two additional conditions related to merging lots and
transportation demand management. On November 18, 2009, the PTC voted 6-0-1
(Commissioner Tuma absent) to approve the Tentative Map. Recommendations were based
upon the findings and conditions of approval located in the Draft Record of Land Use Action
(Attachment A).
During the Site and Design Review, the PTC asked that the applicant provide additional
information for the ARB and City Council consideration. The PTC members expressed an
interest to create a more pedestrian friendly environment along Monroe Drive by recommending
relocation of the sidewalk to the inside edge of the new trees closest to the comer of Monroe
Drive and El Camino Real. Some PTC members also recommended looking at an alternative
hotel entrance that fronts El Camino Real to achieve greater overall consistency with the South
El Camino Real Design Guidelines and the Context-Based Design Criteria of the Palo Alto
Zoning Code. More detail concerning the pedestrian public path easement was also requested to
ensure the public path easement provides a safe path of travel.
During the Tentative Map review, the PTC discussed the sidewalk placement, bicycle/pedestrian
path, private streets, trees, approval conditions and map process. Approval conditions and
findings related to trees have been amended to address inconsistencies noted by the PTC. There
were four speakers providing comments on the project. Two of the speakers expressed concern
about the loss of the bowling alley. Staff received questions from Commissioner Martinez.
Responses are included as Attachment J.
The staff reports from the June 10, 2009 and November 18, 2009 PTC meetings are included as
Attachments C and E, respectively. The PTC meeting minutes are included as Attachment D and
F, respectively (for Council members only) and are available on the City's website at
http://www.cityofpaloalto.org/civica/filebank/blobdload.asp?BlobID=16642.
CMR: 443:09 Page 4 of6
ARB Review
The project was reviewed by the ARB on August 6, 2009, October 1, 2009, and November 5,
2009. The Novenlber 18,2009 PTC report (Attachment E) summarizes project changes reviewed
and recommended by the ARB. The ARB was supportive of the project and recommended
approval by a vote of (5-0-0) with the condition to come back on consent calendar to address six
specific conditions of approval:
1) Reexamine the hotel entry elevation with respect to the various proportions;
2) Reexamine the EI Canlino Real elevation, particularly at the center 100' area in the
middle of the hotel with slightly more modulation;
3) Show gutters and downspouts on all residences;
4) Show grade changes on Monroe elevation; ,
5) Show concrete lentils on all residences;
6) To consider landscaping that compliments the trellis feature along EI Camino Real.
The ARB staff reports are available on the City's website and in City files for public review.
The ARB consent calendar review of project details is tentatively scheduled for December 3,
2009.
RESOURCE IMPACT
The project's addition of 26 residential units, along with its replacement of the existing Motel 6
with a larger hotel would yield the City annual revenues in the form of property taxes, sales
taxes, utility user taxes, and transient occupancy taxes, estimated in the $250,000 to $350,000
range.
One-time revenues would include impact fees of approximately $920,000, and documentary
transfer tax in the $70,000 to $85,000 range.
On the expenditure side, the project's residential portion will create additional demand for City
services, but these will be offset by the developer impact fees mentioned above.
POLICY IMPLICATIONS
This project is the first project with a hotel since the zoning ordinance amendment of2005 ,which
allowed additional FAR (2.0: 1) for hotels and is also the first hotel project since the 2009 zoning
ordinance amendment which addressed extended stay hotels. Hilton Homewood Suites is a
residential-style hotel targeting travelers who are on the road for a few nights or longer. Under
the Homewood Suites business model it is anticipated that fewer than 20% of the guests will stay
for periods of longer than 10 days. The proposed hotel will comply with the requirements of
P AMC 18.16.060 (d) including recently adopted provisions by Council to regulate extended stay
hotels.
The Comprehensive Plan designation is a mix of Service Commercial, Multi-Family Residential,
and Single Family Residential per the Palo Alto 1998 -2010 Comprehensive Plan. The proposed
project for a new mixed use including a hotel and multi-family residential is consistent with the
land use designation. The project is also consistent with Palo Alto Comprehensive Plan policies
related to business and economics. The Comprehensive Plan encourages owners to upgrade or
replace existing commercial properties so that these commercial areas are more competitive and
better serve the community. The existing commercial properties would be redesigned to be more
attractive and inviting for pedestrians. The applicable Comprehensive Plan policies and
CMR: 443:09 Page 5 of6
compliance with the Site and Design review criteria are incorporated into the Draft Record of
Land Use Action (Attachment A).
ENVIRONIVIENTAL REVIEW .
The draft Initial Study and Negative Declaration, which reviewed the environmental issues
related to the project, as required by the California Environmental Quality Act (CEQA), was
circulated for a 20-day public comment period on June 17, 2009. No comments were received
on the Draft Negative Declaration during the comment peliod. A copy of the environmental
document is provided as Attachment H. The Draft Initial Study and Mitigated Negative
Declaration must be adopted prior to the Council decision on this project.
PREPARED BY:
DEPARTMENT HEAD:
CURTIS WILLIAMS
Director of Planning and Community Environment
CITY MANAGER APPROVAL:
ATTACHMENTS
Attachment A:
Attachment B:
Attachment C:
Attachment D:
Attachment E:
Attachment F:
Attachnlent G:
Attachment H:
Attachment I:
Attachment J:
Attachment K:
Attachment L:
Attachnlent M:
Attachment N:
Attachment 0:
Attachment P:
Record of Land Use Action
Location Map
PTC Staff Report June 10,2009 (w/o attachments)
PTC Verbatim Minutes of June 10, 2009
PTC Staff Report November 18, 2009 (w/o attachments)
PTC Verbatinl Minutes of November 18,2009
ARB Staff Report, November 5, 2009 (w/o attachments)
Draft Initial Study and Mitigated Negative Declaration
Mitigation Monitoling Reporting Program
Commissioners' questions and staff responses
Monroe Park Neighborhood Letter
LEED Checklist
Green Point Rated Checklist
Applicant's Presentation (Council only)*
Applicants Palo Alto Bowl Summary to Council Letter (Council only)*
Project Plans (Council only)
*Submitted by Applicant
CMR: 443:09 Page 6 of7
COURTESY COPIES
Aaron Barger, Barry Swenson Builder, Applicant
Ryan Leong, Palo Alto Bowl, LLC, Property Owner
Jonathan Chao, Steinberg Architects, Designer/Architect "
Lil1l1ea Wickstrom, Monroe Park Neighborhood Association, President
Al1l1e Harrington, Cessano Court Resident
Alex Lantsberg, Northern California Carpenters Regional Council
CMR: 443:09 Page 7 of7