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HomeMy WebLinkAboutStaff Report 367-10TO: HONORABLE CITY COUNCIL FROM: CITY MANAGER DATE: OCTOBER 4, 2010 REPORT TYPE: STUDY SESSION DEPARTMENT: PLANNING AND COMMUNITY ENVIRONMENT CMR: 367:10 SUBJECT: Status Report on the East Meadow Circle/Fabian Way and California Avenue/Fry's Area Concept Plans EXECUTIVE SUMMARY The purpose of the study session is for staff to update the City Council on the progress in preparation of the East Meadow Circle/Fabian Way Area and California Avenue/Fry's Area Concept Plans and to allow an opportunity for the City Council provide direction as appropriate . The Concept Plans are part of the City's Comprehensive Plan update, which is currently in process. The intent of the East Meadow Circle concept plan is to evaluate retention of commercial uses, limitations on new residential development , providing support services and enhancement of pedestrian and bicycle connections. The intent of the California Avenue /Fry's area concept plan is to evaluate alternative development intensities, potential for housing increases, preferred uses for the Fry's site, and enhanced pedestrian and bicycle connections. Following this study session, the two concept plans will be heard by the Planning and Transportation Commission for its recommendations. The items will then return to the City Council for direction to evaluate the plans in the Comprehensive Plan Environmental Impact Report. CMR : 367 :10 Page 1 of 12 PURPOSE AND RECOMMENDATION The purpose of this report is to inform the Council about the status of the East Meadow Circle/Fabian Way Area and California Avenue/Fry's Area Concept Plans -currently under preparation as part of the Comprehensive Plan Amendment. Staff recommends that the Council review the general direction of both plans and provide comments to staff. BACKGROUND The City is in the process of updating its Comprehensive Plan to ensure that its land use designations and policies support projected needs and the City's land use visions through 2020. To help evaluate where specific land use designation and policy changes may bc needed, in 2006, the Council directed staffto conduct studies and develop concept plans for two areas: I) the East Meadow Circle/ Fabian Way area and 2) the California Avenue/Fry's area. The East Meadow Circle/Fabian Way area was initially identified for study because of concerns regarding land use changes from industrial to residential that have taken place in the area since 2000. The goals of the study have been to: I. Identify appropriate uses and type of development that would be desirable in the area 2. Update land use designations and policies to reflect and encourage those uses The focus of the study has been to: I. Evaluate the desirability/undesirability of additional housing in the area 2. Retain service commercial and light industrial uses and also encourage retail uses 3. Ensure the provision of adequate amenities and services for residents and employees, including bike/pedestrian connections The California Avenue/Fry's area, which includes the California A venue business district south to the properties that house the existing Fry's Electronics store, was identified for a concept plan study because most of it is within the zoning district designated Pedestrian and Transit Oriented Development (PTOD), and within the Transit-Oriented Residential designation in the current Comprehensive Plan, intended to allow high intensity residential development. Higher density residential development is planned in the PTOD area on commercial, industrial and multi-family parcels within a walkable distance of the California Avenue Caltrain station. The concept plan process provides an opportunity for the City to evaluate the area and target specific sites for future intensification. Although on the periphery of the actual PTOD area, the Fry's site was also included within the plan area to address long range future uses on the property. The existing Comprehensive Plan includes the following relevant policies adopted for the California A venue area that provide context for the concept plan: • Connect the area with the transit station and California A venue. Provide streets and pedestrian connections that create a walkable neighborhood. • Develop a program for the Fry's site for its future use for mixed density multi-family housing and a park or other open space. (note: more recent Council direction includes evaluation of the feasibility of retaining commercial use on the site). CMR: 367:10 Page 2 of 12 • Develop one or more of the City-owned parking lots with primarily residential uses, provided that public parking spaces are replaced. • Improve the Park Boulevard streetscape. DISCUSSION Both concept plans have been in development for approximately 18 months. This report summarizes the work completed to date for each of the plans. East Meadow Circle/Fabian Way Area Concept Plan The East Meadow Circle! Fabian Way area was chosen for study because of the substantial land use changes since 2000.Changes included: I. Echelon residential development 2. Vantage residential development 3. Altaire residential development 4. Taube Koret Campus for Jewish Life During 2009, staff and the City's consultants collaborated with community members to conduct a scries of stakeholder meetings and three community workshops which yielded the following list of concerns and opportunities: • Impact of additional residential development on services­ particularly on schools • Traffic impacts of additional development • Loss of manufacturing and light industrial uses • Need for neighborhood-serving commercial uses • Need for year-round access to the Baylands • Need for off-street parking facilities • Need for park/open space • Need for increased public transit service in the area The meetings and workshops also identified these five key areas/issues for further consideration: 1. East Meadow Circle Subarea II. East of San Antonio Subarea III. Charleston Road Subarea IV. Path along Adobe Creek V. Improved access to the Baylands " , , , • .,I'j ~I I I ~( .. J t\r~ns of the ib-SUCS that were i~IC't1hfjc\1 as a result .oflhe stakeholder meeting-'i find community workshops Input from the participants at the workshops guided staff and consultants in developing CMR: 367:10 Page 3 of [2 alternatives for each area/issue and ultimately in distilling preferred alternatives that generally reflected the collective input provided at the community meetings . Early in 2010, staff prepared the Draft East Meadow Circle/Fabian Way Concept Plan. It reflected concepts developed during the community workshops and the input ofstakeholder meetings, separate research and analysis conducted by staff and the consultant team, and consideration of Comprehensive Plan policies and planning principles. The following is a summary of the draft concept plan, presented to the Planning and Transportation Commission on February 10, 20 I O. I: East Meadow Circle Subarea: The draft plan envisioned a revitalized business park for East Meadow Circle and identified areas where design requirements would be needed to ensure a successful transition between new development and existing single -family neighborhoods. Recommendations for this subarea included: I. Modity development regulations to allow increased floor area for research/office uses and consider 3-story development. 2. Restrict or prohibit potential incompatible uses such as multi-family residential, schools, and day care and require conditional-use­ permits for senior-housing and assisted-living residential uses. 3. Create amenities-tied to increased development potential-such as parking, a park, and enhanced bicycle/pedestrian connections. 4. Develop design guidelines for landscaping and architecture . II: East of San Antonio Subarea : East Mcadol\' Circle Subarea The draft concept plan envisioned larger-format retail stores-possibly with a grocery store as the anchor--{)n a swath of parcels along Charleston Road. The plan emphasi zes the need for a balance of auto-oriented and pedestrian friendly streetscape. C MR : 367:10 Pa ge 4 of 12 Recommendations for this subarea included: I. Change the land use designation to Service Commercial to encourage larger-scale frontage retail along Charleston Road. 2. Increase the allowable floor area ratio in this area , create zoning that encourages retail uses, and develop policies that encourage lot consolidation and restrict office uses . 3. Develop design guidelines for landscaping and architecture. III: Charleston Road Subarea: East of San Anlonio Subarea The draft concept plan envisioned a pedestrian friendly corridor of mixed uses on both sides of Charleston Road i.e., Blocks A and B. The draft concept plan recommended no change to Block C based on the stated intent of the study-retention of viable industrial uses. Recommendations for this subarea included: I. Change the land use design?tion from Light Industrial to Neighborhood Commercial in limited areas to provide commercial services to support residential development. 2. Consider a policy to encourage retentionlrenovation of the Fairchild Building. 3. Consider a policy to encourage the retention of the neighborhood gas station. 4. Develop design guidelines for landscaping and architectural design that maintain a neighborhood-oriented streetscape with good bicycle/pedestrian circulation. 5. Enhance the streetscape of Charleston Road with street trees, improved pedestrian crossings and improved bicycle access and circulation. CMR: 367:10 C[m[cston Rond Subnrca Page 5 of 12 IV and V: Pedestrian/Bike Connections In addition to the preferred alternatives for the three subareas, the plan calls for a bike/pedestrian path along the Adobe Creek right-of-way and a bike /pedestrian overpass across Highway 101 to provide year-round access to the Baylands. On February 10,2010, staff discussed the draft concept plan with the Planning and Transportation Commission (Commission). The Commission's major comments on the draft were: For I, the East Me ado w Circle Subarea, the Commission: I. Requested that the subarea be expanded-to consider changes to la nd use designations and creation of development policies for additional parcels i.e., the parcels fronting Highway 101 and along Fabian Way 2. Did not support the creation of a new park but did support the concept of a greenbelt providing open spaces. 3. Introduced the concept of a floor area cap for consideration. CMR: 367:10 • : Possible Adobe Creek Path • ( Possible Overpass to Baylullds ,,"/\\ Possible e~pallsion of the Easl Mcadow Circle Subarea """ Page 6 of 12 For II, the East of San Antonio Subarea, the Commission: 4 . Supported new retail development but requested that the area identified for retail development be expanded-potentially to include all the parcels north to Highway 101. For III, the Charleston Road Subarea, the Commission: 5 . Introduced the concept of an overlay for Block A-to encourage mixed use with housing that is senior, assisted-living, or such that it complements uses at the Taube Koret Campus for Jewish Life. 6 . Introduced the concept of changing the land use designation of Block C from Light Industrial to Neighborhood Commercial. California Avenue/Fry's area Concept Plan Several stakeholder meetings with property owners in the area , a meeting with business owners along California Avenue and three community workshops were held to discuss the California Avenue/Fry's area and options for a proposed plan. The main issues/concerns and opportunities raised at the workshops included : I. 2. 3. 4. 5. Retaining the unique neighborhood serving, small town feel of California Avenue. Providing support for neighborhood­ serving businesses . Mixed use development on Park Blvd. that does not compete with California Avenue as a retail area. Addressing impacts on schools, traffic, parking and infras tructure from additional residential development in the area. Traffidcirculation and safety in the Park Boulevard area. CMR: 367:10 / " \ ,:~::-:-\ ~\ q Possiblc cxpallsioll of East of Sail Alltollio Sllbarcn nlld thc CI~1rlcstoll Rond Sllbarcn , ~., """' .. _.· ..... 1 Cnlifo"'ia Avclluc Fry's COllcept Plnll $ubnreas Page 7 of 12 6. Improving pedestrian/bicycle connectivity and providing adequate open space. 7. Encouraging retention of FlY'S Electronics. If Fry's relocates, new uses should consider other retail, high density residential or mixed use. The business owners along California Avenue also stressed the desire to retain the current "unpretentious" nature of the retail area and were concerned about the current lack of parking particularly during mid-day and supported increasing the capacity of the garages. The proposal to change the lane configuration on California Avenue from four lanes to two lanes to accommodate pedestrian use as part of the related streetscape project was also discussed. Some business owners and area residents were concerned that the traffic along the street would be impeded and adversely affect businesses and customers alike. Others supported the idea of slowing traffic and enhancing safety and the overall pedestrian experience. The streetscape project was discussed again in two recent meetings with businesses and the community in mid-September and the two-lane configuration continues to be an issue. The owner's of the Fry's property on Portage expressed concern about the site's viability as a commercial use and the site's future should Fry's Electronics leave after their lease expires in 2014. They prefer higher density housing on parcels located in the interior of the site, while commercial may be possible along EI Camino Real. The owners of 395 Page Mill would like to pursue a higher floor area than the maximum allowed under the current land use designation for additional office development to support California Avenue businesses. Draft California Avenue Concept Plan Alternatives Three specific subareas for the Concept Plan have been identified: I. California Avenue co. .. II .. II. Park Boulevard III. Fry's Site These subareas were chosen because of their geography, unique characteristics and development potential. Three draft Concept Plan Alternatives were developed by the consultants and staff for each of the three subareas. Generally, within each subarea one alternative was proposed with little or no change, a second with moderate intensification and a third with higher intensification. _ p~ f\,IV mrn rlity Co;J "(lYt¥(ot I _ l'l*r rl1Uut br! b-E'hJ·. E~V.,.,..,1Xt n l _ Pra;t o.:.1 Q.(urJ.l!"1 @ I -SlJl.JI'\l8ou)j_u_> ____ , ...... ___ ~ Calilomia AWlIlIO Sllbar~a Existing l.'lId Uso Designatiolls Subarea I: California Avenue Subarea The California Avenue subarea includes the business district and surrounding streets. Alternative A would propose no change to the existing Regional/Community Commercial Comprehensive Plan land use designation. This alternative would allow the area to continue CMR: 367:10 Page 8 of 12 to develop as it has been. If no changes are made, it is anticipated that existing buildings may modernize gradually or may not change without incentives for redevelopment. California Avenue would remain a four lane road with possible tree plantings in the median in this version. Alternative B would propose changing the land use to allow medium density residential development. This density could yield two to three story buildings with retail on the ground floor and housing above. To facilitate the higher intensity development, three-story parking garages would be provided. Under Alternative C the land use would allow buildings between three and four stories in height. Because this would allow a greater intensity, redevelopment would become more economically feasible, and, therefore, more new buildings and other changes could result. Changes could include a substantial new park in the area; and, as in Alternative B, more parking structures would be provided CalifOrnia Avenue Streetscape Plan As mentioned above, staff has held several meetings with the neighborhood including businesses, property owners, and residents on California A venue as well as residents in the general vicinity to discuss the future streetscape for California Avenue. Past planning effolts for the area envisioned a multi-modal street that encourages pedestrian and bicycle usage and ensures safety for all types of travel. Changing the street from four lanes to two lanes enables the provision of amenities such as additional trees, bulbouts, reconfigured and added parking, and possibly widened sidewalks that encourage people to walk in the area and patronize the existing businesses. The plan for the lane reduction, however, has been controversial. Staff submitted a grant proposal last week to the Valley Transportation Authority (VT A) for funding for streetscape improvcments that may be granted only if the street is reconfigured to a two lane street. The grants will be announced in late November. If the Council does not support the lane reduction, staff can request withdrawal of the submitted application or can discuss with VTA acceptable modifications to the streetscape design. Subarea 2: Park Boulevard Subarea The Park Boulcvard subarea consists of the propelties located between Park Boulevard and Alma Street, including 395 Page Mill Road, fOlmerly the Agilent building. Alternative A for this subarea would propose two land use designation changes to reflect existing or already proposed uses on 2 sites. Street improvements such as sidewalk bulbouts at the intersections of Park Boulevard and Sheridan Avenue and replacing the dedicated right turn lane on Park Boulevard with street parking could also be implemented to improve circulation in the area. Alternative B for Park Boulevard includes changing the properties on Park Boulevard and 195 Page Mill Road from Light Industrial to allow mixed use development with two to three stories of housing. 2747 and 2785 Park would be redesignated from Light Industrial to allow multi-family residential. Other potential changes includc the same strcct improvements as _ ....... ::=--:-:----- CMR: 367:10 -----:;:-_ ....... - Page 9 of 12 Alternative A and pede strian improvements at Page Mill Road and Park Boulevard. Alternative C would propose the four land use changes similar to Alternative B but at a higher density. The existing Light Industrial Park Boulevard properties would a llow mixed use buildings to be three to four stories tall. The triangular property located across 395 Page Mill Road would be changed to Re search/Office Park. Other Park Blvd . properties would be changed to allow mixed use development at a higher density. As a result of the more intense development, additional infrastructure improvements could include a new traffic signal (if warranted) on Park Boulevard , closing the ramp entering Oregon Expressway from Page Mill Road and/or improving the bicycle connection along Park Boulevard . Subarea 3: Frv's Site Subarea This subarea includes the commercial uses to the west and south of Fry's Electronics as well as some of the low density residential propelties to the north . • - _ Regio(\:\VC OI"M'II"nil y C Ol'Ml~"6,u _ Rc sca rd llO fflCf! Par k b.-Bird '~ Eye V lcwp~nl -Pro ject I\ou nd"rr -Su barea Boun<.iary r · J _~--'.--'--l!L:. ~ Pnrk OOillevlliJ S,;bnrell Existing 1 .a nd ""C DCllignation. ')jn~~ Family ~d<;nti.:al Ught Ir.rustrl.l.l _ Hult l.F.lmily ~iJl Alternative A would change the Multi-Family land use designation of the Fry's property to Service Commercial to match the existing use. No other changes would be proposed. Under this designation, the Fry's property could still be developed with either all commercial development or as a mixed use project. No changes would be made to the streetscape or circulation since the la nd use pattern would remain e ss entially the same. Fry's Subarea Existing Land Use Designations C MR : 367 :10 Page 10 of 12 Alternative B would result in two land use changes. While the designation for the portion ofthe property that actually houses Fry's would remain Multi-family residential, the portion that fronts Park Boulevard would be changed to Neighborhood Commercial. Should the property be redeveloped, housing would be developed in the interior of the site; however, parcels with Park Boulevard frontage could be developed with retail shops or offices. Redevelopment ofthe site would allow Portage and Acacia Avenues to be extended through the site to connect to Park Boulevard. Matadero Creek could also be used to create a linear park. The single family residential properties to the nOith along Olive Avenue could be redesignated as Village Residential, creating a logical transition from the single family neighborhoods to the north and east. Alternative C for the Fry's site would allow an even more intense redevelopment of the subarea. In this proposal, the interior parcels fronting Park Boulevard and the residential properties to the north would be changed to allow mixed use. This would allow redevelopment with a range of offices, retail and residential, offering the greatest amount of flexibility. Redevelopment could take the form of three to four story buildings developed around interior open space. Matadero Creek could also be developed as a linear park and more significant park and open space would be provided internal to the development. Portage and Acacia Avenues could be reconfigured to provide connections to Park Boulevard. Pedestrian and bicycle improvements would also be incorporated. Next Steps Following this hearing, the concept plans will be reviewed by the Planning and Transportation Commission (PTC). The Draft California Avenue/Fry's Concept Plan alternatives will be discussed at a hearing on October 27. The East Meadow Circle/Fabian Way Concept Plan will be discussed by the Commission on November 17'h. Subsequently, the PTC will recommend to the Council, and Council will then tentatively adopt Concept Plans to be evaluated in the Comprehensive Plan EIR. POLICY IMPLICATIONS The two draft concept plans are generally but not entirely, consistent with the existing policies in the Comprehensive Plan. Comprehensive Plan policies as a whole are being revised conCUlTent with this effort, which will require some reconciliation of the plans and policies. ENVIRONMENT AL REVIEW No Council action on either concept plan is requested at this time. The concept plans will be evaluated in the context of the Comprehensive Plan Environmental Impact Report. CMR: 367:10 Page 11 of 12 PREPARED BY: DEPARTMENT HEAD: ~~ CURTIS WIL~ ~ Director of Planning and Community Environment CITY MANAGER APPROVAL: ATTACHMENTS Attachment A: Attachment B: CMR: 367:10 East Meadow Circle Area Concept Plan Boundary California Avenue/Fry's Area Concept Plan Boundary Page 12 of 12 ATTACHMENT A East Meadow/Fabian Concept Plan Area Map /' , ' / , .' / / '.l , , "'C ." .... ,,' , ;-> \\ '~~ r ,.~ .... ,/ , '. " . ?> ~ e ~ . o 0 , ;J>~ ~. -~ 0 I ~ . . .' '. \ ,. ~, I ~§u~~ .. I J -.. . ~ " < ~ \". - I 9 • ···1 .- • ~ ATTACHMENT B '1:1 o in' ~le ~ 3 o • -" ® " iii' California A venue "-. o " Concept Plan Area Map 1< -,; & c <!]" eng, .... " ~ if 0