HomeMy WebLinkAbout2023-09-13 Planning & Transportation Commission Agenda PacketPLANNING AND TRANSPORTATION COMMISSION
Regular Meeting
Wednesday, September 13, 2023
Council Chambers & Hybrid
6:00 PM
Pursuant to AB 361 Palo Alto City Council meetings will be held as “hybrid” meetings with the
option to attend by teleconference/video conference or in person. To maximize public safety
while still maintaining transparency and public access, members of the public can choose to
participate from home or attend in person. Information on how the public may observe and
participate in the meeting is located at the end of the agenda. Masks are strongly encouraged if
attending in person. The meeting will be broadcast on Cable TV Channel 26, live on
YouTube https://www.youtube.com/c/cityofpaloalto, and streamed to Midpen Media
Center https://midpenmedia.org. Commissioner names, biographies, and archived agendas and
minutes are available at http://bit.ly/PaloAltoPTC.
VIRTUAL PARTICIPATION CLICK HERE TO JOIN (https://cityofpaloalto.zoom.us/j/91641559499)
Meeting ID: 916 4155 9499 Phone: 1(669)900‐6833
PUBLIC COMMENTS
Public comments will be accepted both in person and via Zoom for up to three minutes or an
amount of time determined by the Chair. All requests to speak will be taken until 5 minutes
after the staff’s presentation. Written public comments can be submitted in advance to
Planning.Commission@CityofPaloAlto.org and will be provided to the Commission and available
for inspection on the City’s website. Please clearly indicate which agenda item you are
referencing in your subject line.
Spokespersons that are representing a group of five or more people who are identified as
present at the meeting at the time of the spokesperson's presentation will be allowed up to
fifteen (15) minutes at the discretion of the Chair, provided that the non‐speaking members
agree not to speak individually. The Chair may limit Public Comments to thirty (30) minutes for
all combined speakers. The Chair may reduce the allowed time to speak for Study Sessions and
Action Items to two (2) minutes or less to accommodate a larger number of speakers.
PowerPoints, videos, or other media to be presented during public comment are accepted only
by email to Planning.Commission@CityofPaloAlto.org at least 24 hours prior to the meeting.
Once received, the Clerk will have them shared at public comment for the specified item. To
uphold strong cybersecurity management practices, USB’s or other physical electronic storage
devices are not accepted.
TIME ESTIMATES
Listed times are estimates only and are subject to change at any time, including while the
meeting is in progress. The Commission reserves the right to use more or less time on any item,
to change the order of items and/or to continue items to another meeting. Particular items may
be heard before or after the time estimated on the agenda. This may occur in order to best
manage the time at a meeting or to adapt to the participation of the public.
CALL TO ORDER/ ROLL CALL
PUBLIC COMMENT
Members of the public may speak to any item NOT on the agenda. Three (3) minutes per speaker.
AGENDA CHANGES, ADDITIONS AND DELETIONS
The Chair or Board majority may modify the agenda order to improve meeting management.
CITY OFFICIAL REPORTS
1.Director's Report, Meeting Schedule and Assignments
STUDY SESSION
Public Comment is Permitted. Three (3) minutes per speaker.
2.Study session on Amendments to the Land Use Element of the Palo Alto Comprehensive
Plan and Palo Alto Municipal Code Title 18 (Zoning) to Implement Housing Element
Programs 1.1A and 1.1B
APPROVAL OF MINUTES
Public Comment is Permitted. Three (3) minutes per speaker.
3.Approval of Planning & Transportation Commission Draft Verbatim Minutes of August 9,
2023
COMMISSIONER QUESTIONS, COMMENTS, ANNOUNCEMENTS OR FUTURE MEETINGS AND
AGENDAS
Members of the public may not speak to the item(s).
ADJOURNMENT
PUBLIC COMMENT INSTRUCTIONS
Members of the Public may provide public comments to teleconference meetings via email,
teleconference, or by phone.
1. Written public comments m a y b e s u b m i t t e d b y e m a i l t o
planning.commission@cityofpaloalto.org.
2. Spoken public comments using a computer will be accepted through the
teleconference meeting. To address the Commission, click on the link below to access a
Zoom‐based meeting. Please read the following instructions carefully.
You may download the Zoom client or connect to the meeting in‐ browser. If using
your browser, make sure you are using a current, up‐to‐date browser: Chrome 30,
Firefox 27, Microsoft Edge 12, Safari 7. Certain functionality may be disabled in
older browsers including Internet Explorer.
You may be asked to enter an email address and name. We request that you
identify yourself by name as this will be visible online and will be used to notify you
that it is your turn to speak.
When you wish to speak on an Agenda Item, click on “raise hand.” The Clerk will
activate and unmute speakers in turn. Speakers will be notified shortly before they
are called to speak.
When called, please limit your remarks to the time limit allotted. A timer will be
shown on the computer to help keep track of your comments.
3. Spoken public comments using a smart phone will be accepted through the
teleconference meeting. To address the Commission, download the Zoom application
onto your phone from the Apple App Store or Google Play Store and enter the Meeting ID
below. Please follow the instructions above.
4. Spoken public comments using a phone use the telephone number listed below. When
you wish to speak on an agenda item hit *9 on your phone so we know that you wish to
speak. You will be asked to provide your first and last name before addressing the
Commission. You will be advised how long you have to speak. When called please limit
your remarks to the agenda item and time limit allotted.
CLICK HERE TO JOIN Meeting ID: 916 4155 9499 Phone:1‐669‐900‐6833
Americans with Disability Act (ADA) It is the policy of the City of Palo Alto to offer its public
programs, services and meetings in a manner that is readily accessible to all. Persons with
disabilities who require materials in an appropriate alternative format or who require auxiliary
aids to access City meetings, programs, or services may contact the City’s ADA Coordinator at
(650) 329‐2550 (voice) or by emailing ada@cityofpaloalto.org. Requests for assistance or
accommodations must be submitted at least 24 hours in advance of the meeting, program, or
service.
PLANNING AND TRANSPORTATION COMMISSIONRegular MeetingWednesday, September 13, 2023Council Chambers & Hybrid6:00 PMPursuant to AB 361 Palo Alto City Council meetings will be held as “hybrid” meetings with theoption to attend by teleconference/video conference or in person. To maximize public safetywhile still maintaining transparency and public access, members of the public can choose toparticipate from home or attend in person. Information on how the public may observe andparticipate in the meeting is located at the end of the agenda. Masks are strongly encouraged ifattending in person. The meeting will be broadcast on Cable TV Channel 26, live onYouTube https://www.youtube.com/c/cityofpaloalto, and streamed to Midpen MediaCenter https://midpenmedia.org. Commissioner names, biographies, and archived agendas andminutes are available at http://bit.ly/PaloAltoPTC. VIRTUAL PARTICIPATION CLICK HERE TO JOIN (https://cityofpaloalto.zoom.us/j/91641559499)Meeting ID: 916 4155 9499 Phone: 1(669)900‐6833PUBLIC COMMENTSPublic comments will be accepted both in person and via Zoom for up to three minutes or anamount of time determined by the Chair. All requests to speak will be taken until 5 minutesafter the staff’s presentation. Written public comments can be submitted in advance toPlanning.Commission@CityofPaloAlto.org and will be provided to the Commission and availablefor inspection on the City’s website. Please clearly indicate which agenda item you arereferencing in your subject line.Spokespersons that are representing a group of five or more people who are identified aspresent at the meeting at the time of the spokesperson's presentation will be allowed up tofifteen (15) minutes at the discretion of the Chair, provided that the non‐speaking membersagree not to speak individually. The Chair may limit Public Comments to thirty (30) minutes forall combined speakers. The Chair may reduce the allowed time to speak for Study Sessions andAction Items to two (2) minutes or less to accommodate a larger number of speakers.PowerPoints, videos, or other media to be presented during public comment are accepted onlyby email to Planning.Commission@CityofPaloAlto.org at least 24 hours prior to the meeting.Once received, the Clerk will have them shared at public comment for the specified item. Touphold strong cybersecurity management practices, USB’s or other physical electronic storagedevices are not accepted.TIME ESTIMATES
Listed times are estimates only and are subject to change at any time, including while the
meeting is in progress. The Commission reserves the right to use more or less time on any item,
to change the order of items and/or to continue items to another meeting. Particular items may
be heard before or after the time estimated on the agenda. This may occur in order to best
manage the time at a meeting or to adapt to the participation of the public.
CALL TO ORDER/ ROLL CALL
PUBLIC COMMENT
Members of the public may speak to any item NOT on the agenda. Three (3) minutes per speaker.
AGENDA CHANGES, ADDITIONS AND DELETIONS
The Chair or Board majority may modify the agenda order to improve meeting management.
CITY OFFICIAL REPORTS
1.Director's Report, Meeting Schedule and Assignments
STUDY SESSION
Public Comment is Permitted. Three (3) minutes per speaker.
2.Study session on Amendments to the Land Use Element of the Palo Alto Comprehensive
Plan and Palo Alto Municipal Code Title 18 (Zoning) to Implement Housing Element
Programs 1.1A and 1.1B
APPROVAL OF MINUTES
Public Comment is Permitted. Three (3) minutes per speaker.
3.Approval of Planning & Transportation Commission Draft Verbatim Minutes of August 9,
2023
COMMISSIONER QUESTIONS, COMMENTS, ANNOUNCEMENTS OR FUTURE MEETINGS AND
AGENDAS
Members of the public may not speak to the item(s).
ADJOURNMENT
PUBLIC COMMENT INSTRUCTIONS
Members of the Public may provide public comments to teleconference meetings via email,
teleconference, or by phone.
1. Written public comments m a y b e s u b m i t t e d b y e m a i l t o
planning.commission@cityofpaloalto.org.
2. Spoken public comments using a computer will be accepted through the
teleconference meeting. To address the Commission, click on the link below to access a
Zoom‐based meeting. Please read the following instructions carefully.
You may download the Zoom client or connect to the meeting in‐ browser. If using
your browser, make sure you are using a current, up‐to‐date browser: Chrome 30,
Firefox 27, Microsoft Edge 12, Safari 7. Certain functionality may be disabled in
older browsers including Internet Explorer.
You may be asked to enter an email address and name. We request that you
identify yourself by name as this will be visible online and will be used to notify you
that it is your turn to speak.
When you wish to speak on an Agenda Item, click on “raise hand.” The Clerk will
activate and unmute speakers in turn. Speakers will be notified shortly before they
are called to speak.
When called, please limit your remarks to the time limit allotted. A timer will be
shown on the computer to help keep track of your comments.
3. Spoken public comments using a smart phone will be accepted through the
teleconference meeting. To address the Commission, download the Zoom application
onto your phone from the Apple App Store or Google Play Store and enter the Meeting ID
below. Please follow the instructions above.
4. Spoken public comments using a phone use the telephone number listed below. When
you wish to speak on an agenda item hit *9 on your phone so we know that you wish to
speak. You will be asked to provide your first and last name before addressing the
Commission. You will be advised how long you have to speak. When called please limit
your remarks to the agenda item and time limit allotted.
CLICK HERE TO JOIN Meeting ID: 916 4155 9499 Phone:1‐669‐900‐6833
Americans with Disability Act (ADA) It is the policy of the City of Palo Alto to offer its public
programs, services and meetings in a manner that is readily accessible to all. Persons with
disabilities who require materials in an appropriate alternative format or who require auxiliary
aids to access City meetings, programs, or services may contact the City’s ADA Coordinator at
(650) 329‐2550 (voice) or by emailing ada@cityofpaloalto.org. Requests for assistance or
accommodations must be submitted at least 24 hours in advance of the meeting, program, or
service.
PLANNING AND TRANSPORTATION COMMISSIONRegular MeetingWednesday, September 13, 2023Council Chambers & Hybrid6:00 PMPursuant to AB 361 Palo Alto City Council meetings will be held as “hybrid” meetings with theoption to attend by teleconference/video conference or in person. To maximize public safetywhile still maintaining transparency and public access, members of the public can choose toparticipate from home or attend in person. Information on how the public may observe andparticipate in the meeting is located at the end of the agenda. Masks are strongly encouraged ifattending in person. The meeting will be broadcast on Cable TV Channel 26, live onYouTube https://www.youtube.com/c/cityofpaloalto, and streamed to Midpen MediaCenter https://midpenmedia.org. Commissioner names, biographies, and archived agendas andminutes are available at http://bit.ly/PaloAltoPTC. VIRTUAL PARTICIPATION CLICK HERE TO JOIN (https://cityofpaloalto.zoom.us/j/91641559499)Meeting ID: 916 4155 9499 Phone: 1(669)900‐6833PUBLIC COMMENTSPublic comments will be accepted both in person and via Zoom for up to three minutes or anamount of time determined by the Chair. All requests to speak will be taken until 5 minutesafter the staff’s presentation. Written public comments can be submitted in advance toPlanning.Commission@CityofPaloAlto.org and will be provided to the Commission and availablefor inspection on the City’s website. Please clearly indicate which agenda item you arereferencing in your subject line.Spokespersons that are representing a group of five or more people who are identified aspresent at the meeting at the time of the spokesperson's presentation will be allowed up tofifteen (15) minutes at the discretion of the Chair, provided that the non‐speaking membersagree not to speak individually. The Chair may limit Public Comments to thirty (30) minutes forall combined speakers. The Chair may reduce the allowed time to speak for Study Sessions andAction Items to two (2) minutes or less to accommodate a larger number of speakers.PowerPoints, videos, or other media to be presented during public comment are accepted onlyby email to Planning.Commission@CityofPaloAlto.org at least 24 hours prior to the meeting.Once received, the Clerk will have them shared at public comment for the specified item. Touphold strong cybersecurity management practices, USB’s or other physical electronic storagedevices are not accepted.TIME ESTIMATESListed times are estimates only and are subject to change at any time, including while themeeting is in progress. The Commission reserves the right to use more or less time on any item,to change the order of items and/or to continue items to another meeting. Particular items maybe heard before or after the time estimated on the agenda. This may occur in order to bestmanage the time at a meeting or to adapt to the participation of the public.CALL TO ORDER/ ROLL CALLPUBLIC COMMENT Members of the public may speak to any item NOT on the agenda. Three (3) minutes per speaker.AGENDA CHANGES, ADDITIONS AND DELETIONSThe Chair or Board majority may modify the agenda order to improve meeting management.CITY OFFICIAL REPORTS1.Director's Report, Meeting Schedule and AssignmentsSTUDY SESSIONPublic Comment is Permitted. Three (3) minutes per speaker.2.Study session on Amendments to the Land Use Element of the Palo Alto ComprehensivePlan and Palo Alto Municipal Code Title 18 (Zoning) to Implement Housing ElementPrograms 1.1A and 1.1BAPPROVAL OF MINUTESPublic Comment is Permitted. Three (3) minutes per speaker.3.Approval of Planning & Transportation Commission Draft Verbatim Minutes of August 9,2023COMMISSIONER QUESTIONS, COMMENTS, ANNOUNCEMENTS OR FUTURE MEETINGS ANDAGENDAS
Members of the public may not speak to the item(s).
ADJOURNMENT
PUBLIC COMMENT INSTRUCTIONS
Members of the Public may provide public comments to teleconference meetings via email,
teleconference, or by phone.
1. Written public comments m a y b e s u b m i t t e d b y e m a i l t o
planning.commission@cityofpaloalto.org.
2. Spoken public comments using a computer will be accepted through the
teleconference meeting. To address the Commission, click on the link below to access a
Zoom‐based meeting. Please read the following instructions carefully.
You may download the Zoom client or connect to the meeting in‐ browser. If using
your browser, make sure you are using a current, up‐to‐date browser: Chrome 30,
Firefox 27, Microsoft Edge 12, Safari 7. Certain functionality may be disabled in
older browsers including Internet Explorer.
You may be asked to enter an email address and name. We request that you
identify yourself by name as this will be visible online and will be used to notify you
that it is your turn to speak.
When you wish to speak on an Agenda Item, click on “raise hand.” The Clerk will
activate and unmute speakers in turn. Speakers will be notified shortly before they
are called to speak.
When called, please limit your remarks to the time limit allotted. A timer will be
shown on the computer to help keep track of your comments.
3. Spoken public comments using a smart phone will be accepted through the
teleconference meeting. To address the Commission, download the Zoom application
onto your phone from the Apple App Store or Google Play Store and enter the Meeting ID
below. Please follow the instructions above.
4. Spoken public comments using a phone use the telephone number listed below. When
you wish to speak on an agenda item hit *9 on your phone so we know that you wish to
speak. You will be asked to provide your first and last name before addressing the
Commission. You will be advised how long you have to speak. When called please limit
your remarks to the agenda item and time limit allotted.
CLICK HERE TO JOIN Meeting ID: 916 4155 9499 Phone:1‐669‐900‐6833
Americans with Disability Act (ADA) It is the policy of the City of Palo Alto to offer its public
programs, services and meetings in a manner that is readily accessible to all. Persons with
disabilities who require materials in an appropriate alternative format or who require auxiliary
aids to access City meetings, programs, or services may contact the City’s ADA Coordinator at
(650) 329‐2550 (voice) or by emailing ada@cityofpaloalto.org. Requests for assistance or
accommodations must be submitted at least 24 hours in advance of the meeting, program, or
service.
Item No. 1. Page 1 of 2
Planning & Transportation Commission
Staff Report
From: Jonathan Lait, Planning and Development Services Director
Lead Department: Planning and Development Services
Meeting Date: September 13, 2023
Report #: 2308-1892
TITLE
Director's Report, Meeting Schedule and Assignments
RECOMMENDATION
Staff recommends that the Planning and Transportation Commission (PTC) review and
comment as appropriate.
EXECUTIVE SUMMARY
This document includes the following items:
· PTC Meeting Schedule
· PTC Representative to City Council (Rotational Assignments)
· Upcoming PTC Agenda Items
Commissioners are encouraged to contact Veronica Dao (Veronica.Dao@CityofPaloAlto.org) to
notify staff of any planned absences one month in advance, if possible, to ensure the
availability of a PTC quorum.
PTC Representative to City Council is a rotational assignment where the designated
commissioner represents the PTC’s affirmative and dissenting perspectives to Council for
quasijudicial and legislative matters. Representatives are encouraged to review the City Council
agendas (https://www.cityofpaloalto.org/City-Hall/City-Council/Council-Agendas-Minutes) for
the months of their respective assignments to verify if attendance is needed or contact staff.
Prior PTC meetings are available online at https://midpenmedia.org/category/government/city-
of-palo-alto/boards-and-commissions/planning-and-transportation-commission.
UPCOMING PTC MEETINGS
September 27:
•No action items are scheduled
Item 1
Staff Report
Packet Pg. 4
Item No. 1. Page 2 of 2
October 11:
•Recommendation on a Resolution Amending the Land Use Element of the Palo Alto
Comprehensive Plan and an Ordinance Amending Title 18 (Zoning) to Implement
Housing Element Programs 1.1A and 1.1B
•Safe Streets for All (SS4A) Action Plan & Safe Systems Approach Introduction
October 25:
•Study Session to Review the Draft North Ventura Coordinated Area Plan
ATTACHMENTS
Attachment A: 2023 Meeting Schedule and Assignments
AUTHOR/TITLE:
Veronica Dao, Administrative Associate
Item 1
Staff Report
Packet Pg. 5
Planning & Transportation Commission
2023 Meeting Schedule & Assignments
2
2
7
0
2023 Schedule
Meeting Dates Time Location Status Planned Absences
1/11/2023 6:00 PM Hybrid Cancelled
1/25/2023 6:00 PM Hybrid Cancelled
2/08/2023 6:00 PM Hybrid Regular
2/22/2023 6:00 PM Hybrid Regular
3/08/2023 6:00 PM Hybrid Regular
3/29/2023 6:00 PM Hybrid Regular
4/12/2023 6:00 PM Hybrid Cancelled Bryna Chang
4/26/2023 6:00 PM Hybrid Regular Bart Hechtman
5/08/2023 6:00 PM Hybrid Joint Session w/ Council
5/10/2023 6:00 PM Hybrid Regular
5/31/2023 6:00 PM Hybrid Regular
6/14/2023 6:00 PM Hybrid Regular Bart Hechtman
6/28/2023 6:00 PM Hybrid Regular Bryna Chang
7/12/2023 6:00 PM Hybrid Regular Bart Hechtman
7/26/2023 6:00 PM Hybrid Regular George Lu
8/09/2023 6:00 PM Hybrid Regular
8/30/2023 6:00 PM Hybrid Regular
9/13/2023 6:00 PM Hybrid Regular
9/27/2023 6:00 PM Hybrid Regular
10/11/2023 6:00 PM Hybrid Regular
10/25/2023 6:00 PM Hybrid Regular
11/08/2023 6:00 PM Hybrid Regular
11/29/2023 6:00 PM Hybrid Regular
12/13/2023 6:00 PM Hybrid Regular
12/27/2023 6:00 PM Hybrid Cancelled
2023 Assignments - Council Representation (primary/backup)
January February March April May June
Cari Templeton
Giselle Roohparvar
Giselle Roohparvar
Keith Reckdahl
Bart Hechtman
Doria Summa
Doria Summa
Bryna Chang
Bryna Chang
Keith Reckdahl
Keith Reckdahl
Bart Hechtman
July August September October November December
Cari Templeton
Allen Akin
Bart Hechtman
George Lu
Doria Summa
Keith Reckdahl
Bryna Chang
Cari Templeton
Allen Akin
Bart Hechtman
George Lu
Doria Summa
Item 1
Attachment A PTC 2023
Schedule & Assignments
Packet Pg. 6
Item No. 2. Page 1 of 14
Planning & Transportation Commission
Staff Report
From: Jonathan Lait, Planning and Development Services Director
Lead Department: Planning and Development Services
Meeting Date: September 13, 2023
Report #: 2309-1981
TITLE
Study Session on Amendments to the Land Use Element of the Palo Alto Comprehensive Plan
and Palo Alto Municipal Code Title 18 (Zoning) to Implement Housing Element Programs 1.1A
and 1.1B
RECOMMENDATION
Staff recommends that the Planning & Transportation Commission (PTC) hold a study session to
discuss implementation of the 2023-2031 Housing Element Programs 1.1A and 1.1B, including:
1. Amendments to the Palo Alto Comprehensive Plan Land Use Element (Attachment A)
2. Amendments to Title 18 (Zoning) of the Palo Alto Municipal Code (PAMC) (Attachment
B)
EXECUTIVE SUMMARY
Program 1.1 in the recently adopted Housing Element necessitates certain amendments to the
Land Use Element of the Comprehensive Plan and Zoning Ordinance. The proposed zoning
amendments include a new chapter in Title 18 to consolidate existing and proposed housing
incentive programs. Consistent with Program 1.1, the proposed zoning amendments rezone
certain Housing Element opportunity sites to modify densities and other development
standards that support multifamily housing at capacities identified in the Housing Element. In
this way, these amendments would facilitate housing production, meet the regional housing
needs allocation (RHNA), and affirmatively further fair housing (AFFH).
According to Housing Element Law, the rezonings in Program 1.1A to meet the RHNA must be
completed within one year of the required Housing Element adoption date (i.e., by January 31,
2024). According to the adopted Housing Element, the City is also committed to completing
Program 1.1B (GM and ROLM rezonings) by January 31, 2024.
Item 2
Staff Report
Packet Pg. 7
Item No. 2. Page 2 of 14
Attachment A represents amendments to the Land Use Element of the Comprehensive Plan to
update floor area ratio (FAR) ranges and ensure consistency with the Housing Element and the
Zoning Ordinance. Amendments are shown as annotations in the margin.
Attachment B represents amendments to Title 18 in the form of a new chapter, 18.14: Housing
Incentives and revisions to base district regulations. Changes include rezonings to allow
multifamily housing as a permitted use, increases in residential density/FAR and modifications
to other development standards, as specified in the Housing Element to meet the RHNA and
sites inventory estimates. These proposed amendments necessitate changes to base district
regulations in existing zoning chapters; these changes are shown in underline/strikeout.
BACKGROUND
On May 8, 2023, at a joint public hearing, the PTC recommended that the City Council adopt--
and subsequently the City Council adopted -- the 2023-2031 Housing Element. The Element
aims to implement State Housing Element law, including meeting the RHNA and fulfilling AFFH
objectives. More information about the Housing Element can be found at the project website:
www.paloaltohousingelement.com.
Program 1.1 represents the City’s rezoning program to meet the "Adequate Sites Inventory”
required under State law and is excerpted in Attachment C. This program necessitates
amendments to the Zoning Ordinance to modify density and other development standards.
These rezonings must accommodate multifamily housing at the capacity levels prescribed in the
Housing Element. In summary, Program 1.1 requires the following zoning amendments on
Housing Element opportunity sites:
•Rezoning of the R-1, ROLM, RP, GM, and PF districts to allow multiple-family housing as
a permitted use Up-zonings to increase residential densities and/or FARs, including on
Stanford Lands
•Modifications to other development standards to ensure that development is feasible at
current and planned densities (e.g., landscape coverage)
•Statutory requirements that residential uses occupy at least 50 percent of the total floor
area of a mixed-use project within a mixed-use
PROJECT DESCRIPTION
Comprehensive Plan Amendments
The recently adopted Housing Element of the Palo Alto Comprehensive Plan identifies planned
changes to uses and densities that will need to be updated in the Land Use Element of the
Comprehensive Plan to ensure consistency between the Comprehensive Plan and the proposed
zoning. Attachment A annotates proposed amendments to the Land Use Element of the
Comprehensive Plan to update FAR ranges, consistent with the Housing Element and proposed
changes to the Zoning Ordinance. All of the land use designations that support Housing Element
Item 2
Staff Report
Packet Pg. 8
Item No. 2. Page 3 of 14
opportunity sites already allow multifamily housing as a permitted use; therefore, no use
changes are required in the Comprehensive Plan.
Zoning Ordinance Amendments
The rezonings in Program 1.1A to meet the RHNA must be completed within one year of the
required Housing Element adoption date (i.e., by January 31, 2024). According to the adopted
Housing Element, the City is also committed to completing Program 1.1B (GM and ROLM
rezonings) by January 31, 2024. Attachment B aims to codify Program 1.1A and 1.1B in the
Zoning Ordinance. It also consolidates a range of housing programs that will support
implementation of the Housing Element into a single chapter.
Section 18.14.020: Housing Opportunity Sites
This section modifies base district development standards on Housing Element opportunity
sites. Regulations for these sites are those specified in the base district regulations, except as
modified by this proposed chapter. In zones that regulate residential density, primarily the RM
zones, these modifications increase maximum residential density limits consistent with
Appendix D of the Housing Element. All zoning districts regulate FAR, so amendments also
modify FAR limits. In zones that do not currently specify a maximum residential density, FAR
acts as a proxy for residential densities stated in Appendix D.
This section also modifies other development standards that were identified as constraints to
development in Chapter 4 of the Housing Element (see excerpt in Attachment D). For most
districts, this includes modifications to the landscape coverage standard which generally
requires landscape planting on the ground-floor. As stated in the adopted Housing Element,
despite the well-meaning value of enabling trees, shrubs and groundcover, this often
represents a constraint to development by shrinking the building footprint. Therefore,
proposed modifications to this standard allow it to be met above the ground-floor, permitting a
larger building footprint, while still enabling planted areas for residents.
In the employment districts (i.e., ROLM, GM, RP), the Housing Element specifies much higher
densities compared to what the existing base district regulations allow. As a result, the Housing
Element identified additional standards that would represent constraints to development (see
Attachment D excerpt) at higher densities. The zoning amendments therefore modify standards
for lot coverage, parking, and building height, in addition to increasing FAR and reducing
landscape coverage requirements.
Finally, the draft ordinance will contain specific development standards to apply to three sites
owned by Stanford University. City staff are still formalizing these specific standards which will
be shared at a future meeting.
Item 2
Staff Report
Packet Pg. 9
Item No. 2. Page 4 of 14
Section 18.14.030: Housing Incentive Program (HIP)
This section is a placeholder location to consolidate regulations pursuant to the existing HIP and
amendments proposed as part of Program 3.4 of the Housing Element. This ordinance does not
include changes to the HIP at this time.
Section 18.14.040: Affordable Housing Incentive Program (AHIP)
This section is a placeholder location to relocate existing 18.32 AHIP regulations into this
consolidated chapter of housing incentives. This ordinance does not include amendments to
this program at this time.
Base Districts
The ordinance amends several of the base zoning districts for two main purposes:
(1) To allow multifamily as a permitted use on Housing Element opportunity sites, where
otherwise not allowed; and
(2) To provide a cross-reference to modified development standards for opportunity sites in the
new Section 18.14.040.
ANALYSIS
This report accepts at face value the analysis completed as part of the Housing Element to
verify whether permitted densities are physically feasible. That analysis looked at the
combination of land use regulations, such as building height, density, and parking, and revealed
certain constraints in the relationship between various standards, including density/FAR and
landscape coverage in certain districts. (Notably, Housing Element law does not require an
analysis of financial feasibility with respect to the permitted densities identified in the Sites
Inventory.) This analysis is excerpt in Attachment D, and an example site test for the CN District
is provided in Figure 1.
Figure 1: Example Site Test (CN District)
The FAR, building height and ground-floor landscape requirement are the key standards that
drive this site test. The model is able to achieve 33 du/ac by designing underground parking.
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Increasing FAR and
modifying the
landscape standard to
allow for above-ground
open space improve
the site plan and unit
yields while still
retaining the 35-foot
height limit.
Source: Adopted
Housing Element (June
2023), Lexington
Planning, Urban Field
Studio, 2023.
This report analyzes
the next step in determining specific zoning changes, including how residential densities in the
Housing Element are translated into FARs, and the relationship between FAR, lot coverage,
building height, and residential density to determine other necessary changes to zoning
regulations.
Determining Residential Density vs. FAR
The Housing Element specifies “realistic capacity” based on a residential density factor,
expressed as dwelling units per acre (du/ac). However, not all zoning districts regulate
residential density as a standard. Therefore, the ordinance generally regulates density through
FAR limits. This section explores this relationship and how staff and consultants came to
proposed FAR values.
As shown in Figure 2, residential density can be an imperfect metric to predict a project’s
massing and unit count. FAR values can be more easily illustrated and compared between
projects to demonstrate the relationship between total floor area and the site area, and the
resulting massing.
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Figure 2: Residential Density vs. FAR
Residential Density Floor Area Ratio (FAR)
Hypothetical 1-Acre Project
Senior Housing Student Housing
•100 units
•Studios/1-Bed
•100 bedrooms
= 100 units/acre
•20 units
•5-Bed suites
•100 bedrooms
= 20 units/acre
Residential density values vary based on the
number of units and do not reflect the unit
size or number of bedrooms in each unit.
Equal FAR values can appear as very different massing
and height configurations but are independent of unit
count and bedroom sizes.
Source: City of Seattle Land Use Code (image), Lexington Planning, 2023.
The Housing Element site tests excerpted in Attachment D helped further reveal the relationship
between residential density and FAR, allowing staff and consultants to identify appropriate FARs
based on site conditions and other development standards in Palo Alto specifically.1 Figure 3
further illustrates various configurations of the same FAR, by layering in lot coverage and building
height. The illustrations reveal effects on the ground plane, including why ground-level
landscaping is difficult to achieve as FAR intensity increases and which standards accommodate
surface parking vs. structured parking.
1 Architects at Urban Field Studio and planners at Lexington Planning prepared and analyzed physical feasibility
models contained in the Housing Element.
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Figure 3: Massing Study: Relationship Between Lot Coverage, FAR and Building Height
Source: Urban Field Studio, 2023.
Regulating Maximum Residential Density vs. Regulating Maximum FAR
In some cases, the Housing Element sites inventory identifies an increase in permitted
residential density: for example, by allowing 40 or 50 du/ac on an RM-30 site that is otherwise
capped at 30 du/ac. In other cases, the sites inventory uses development standards, like FAR, to
calculate realistic capacity of 50 du/ac where no maximum density standard exists, such as in
the CD-C zoning district. While this ordinance includes a change in residential density for the
former example, it does not include changes for the latter example, because applying a 50
du/ac limit could serve to potentially constrain otherwise allowable development.
The choice between regulation of unit count vs. building mass is further highlighted by recent
developments in developer use of State Density Bonus Law. Several recent applications to the
City have asserted that the City’s physical development standards must be waived under
Density Bonus Law so long as the proposed project is complying with the maximum density
established in City code. In zones where the City does not prescribe a maximum density,
however, State law provides that standards like FAR may stand in for density and need not be
waived.
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How Changes to Residential Density and Development Standards are Applied to Housing
Opportunity Sites
Table 1 summarizes proposed changes to the standards for density, intensity, and landscape
coverage in the residential and commercial mixed-use districts. In terms of FAR, as a baseline,
the draft ordinance allows at least 1.25:1 FAR, which generally accommodates three stories of
development with fairly low lot coverages of 45%, as shown in Figure 3. Notably, 1.25:1 FAR is
currently the minimum standard required under State law for small projects with 8-10 units and
is codified accordingly in the City’s RM districts. From this baseline, FARs range up to 2:1 in
Downtown (CD-C) and 2.5:1 in the GM/ROLM areas shown in the West Bayshore area (see
Figure 4 below). Maximum density standards, if they are proposed for change at all, are as
specified in the Housing Element. Landscape coverage is generally revised to allow applicants to
meet the standard on upper stories, such as a podium courtyard.
Table 1: Proposed Zoning Changes (Residential and Commercial Mixed Use Districts)
Maximum FAR
Maximum Landscape
Coverage
Maximum Density
(du/ac)
Zoning Existing Proposed Existing Proposed Existing Proposed
CC(2)
Residential:
1.25 (8-10 units)
1.0 (3-7 units)
0.6 (other)
Total: 2.0
Residential:
1.5
Total: 2.0 20%
Allow
above the
ground-
floor None None
CC
Residential:
1.25 (8-10 units)
1.0 (3-7 units)
0.15 (other)
Total: 1.0
Residential:
1.25
Total: 1.25 30%
Allow
above the
ground-
floor None None
CS (El
Camino) None None
CS (Other)
Residential:
1.25 (8-10 units)
1.0 (3-7 units)
0.6 (other)
Total: 1.0
Residential:
1.25
Total: 1.25
30%
Allow
above the
ground-
floor 30 30-40
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CN (El
Camino Real)
Residential:
1.25 (8-10 units)
1.0 (3-7 units)
0.5 (other)
Total: 1.0-1.25 None None
CN (Other)
Residential:
1.25 (8-10 units)
1.0 (3-7 units)
0.5 (other)
Total: 0.9-1.25
Residential:
1.25
Total: 1.25
35%
30%
Allow
above the
ground-
floor 15-20 30-40
CD-C
Residential:
1.25 (8-10 units)
1.0 (3-7 units)
1.0 (other)
Total: 2.0 (3.0 w/
TDR)
Residential:
2.0
Total: 2.0
(3.0 w/
TDR) 20%
Allow
above the
ground-
floor None None
CD-N
Residential
1.25 (8-10 units)
1.0 (3-7 units)
0.5 (other)
Total: 0.9-1.25 (2.0
w/TDR)
Residential:
1.5
Total: 1.5 35%
Allow
above the
ground-
floor 50 50
RM-40
Residential:
1.25 (8-10 units)
1.0 (3-7 units)
1.0 (other) 1.5 20%
Allow
above the
ground-
floor 40 40-50
RM-30
Residential:
1.25 (8-10 units)
1.0 (3-7 units)
0.6 (other) 1.25 30%
Allow
above the
ground-
floor 30 30-50
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RM-20
Residential:
1.25 (8-10 units)
1.0 (3-7 units)
0.5 (other) 1.25 35%No change 20 20-50
PF (Cal. Ave.)
See CC(2)
standards
above
See CC(2)
standards
above
See CC(2)
standards
above
PF
(Downtown)
None
See CD(C)
standards
above
None
See CD(C)
standards
above
None
See CD(C)
standards
above
The higher densities approved for the employment districts necessitate other modifications to
development standards. These are specified in the Housing Element excerpt in Attachment D
and proposed to be codified as shown in Table 2. This results in taller height limits, increased lot
coverage and landscape coverage requirements, and reduced parking requirements, in addition
to changes to FAR limits. Note that the Housing Element calls for higher densities in the GM/
ROLM district in the West Bayshore area (see Figure 4 below).
Table 2: Proposed Zoning Changes (Employment Districts)
Zoning Maximum FAR
Maximum
Landscape
Coverage
Maximum
Lot
Coverage
Maximum
Density
(du/ac)
Max.
Height
Minimum
Residential
Parking Ratios
GM
Residential: N/A
Total: 0.5 None None None 50 N/A
ROLM
Residential:
1.25 (8-10 units)
1.0 (3-7 units)
0.6 (other)
Total: 1.0-1.25 30%40%30 35
E
X
I
S
T
I
N
G
RP
Residential:
1.25 (8-10 units)
1.0 (3-7 units)
0.5 (other)35%35%None 30
1 per studio/1-
bed; 2.0 per 2+
bed
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Total: 0.5-1.25
GM (Fig. 4)2.5
20% above
the ground-
floor 70%
None; 90
anticipated
(1)60
1 per
studio/1-bed;
1.5 per 2+
bed
GM (Other)1.5
30% above
the ground-
floor 70%40-50
No
change No change
ROLM (Fig. 4)2.5
20% above
the ground-
floor 70%
None; 90
anticipated
(1)60
1 per
studio/1-bed;
1.5 per 2+
bed
ROLM
(Other)1.5
above the
ground-floor
70%
None; 50
anticipated
(1)45 No change
P
R
O
P
O
S
E
D
RP 1.25
above the
ground-floor
No change
None; 40
anticipated
(1)
No
change No change
1. These sites do not provide a maximum density in terms of du/ac; however, anticipated
densities have been determined by estimating the realistic development capacity of the
site based on the objective development standards applicable to the project.
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Figure 4: GM/ROLM Housing Element Focus Area
Benefits and Drawbacks of New Chapter
Consolidating housing incentive opportunities in a new chapter has benefits and drawbacks. On
the one hand, it makes clear to decision-makers, community members, and the State
Department of Housing & Community Development (HCD) where to find the City’s regulations
for implementing Housing Element programs. It prevents staff from needing to make lots of
redline amendments to development standards within base zoning district regulations that
could create confusion for applicants, City staff, and decision-makers when reviewing projects.
On the other hand, this new chapter adds complexity to the Zoning Ordinance. It requires City
staff and applicants to look in multiple places—the base zoning district, the new Chapter 18.14,
and the Housing Element sites inventory—to determine which regulations apply. Creating this
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stand-alone chapter allows for a narrow application of these standards to the set of sites
specified in Appendix D of the Housing Element (i.e., sites identified for rezoning). It does not
apply to other Housing Element opportunity sites (I.e., sites not identified for rezoning) or to
sites that allow housing but are not listed on the Sites Inventory. This narrow application is
consistent with Housing Element Program 1.1 but would create different standards for sites
that share the same zoning designation.
One option that the PTC could consider is allowing these zoning modifications to apply more
broadly to the zoning district as a whole. Since the Housing Element sites represent the most
viable housing sites for development, at least within the next 8 years, the potential implications
may not be significant. Notably, raising the base density for the district as a whole could have
implications for the use of State Density Bonus Law. It would effectively raise the “floor” upon
which density bonuses are calculated. On the one hand, this would generate more below-
market rate housing units within a State Density Bonus Law-compliant project, but would also
allow additional density bonus, which could result in taller and larger buildings than are
currently permitted by the Zoning Ordinance.
STAKEHOLDER ENGAGEMENT
Preparation of the Housing Element included a range of community outreach methods,
including surveys, Working Group meetings, community workshops, and public hearings.
Hundreds of community members have participated in the Housing Element update over the
course of the project. To announce the release of the Public Review draft, an email blast was
sent to over 400 recipients with information about the Public Review draft release. Meetings
included a November 16, 2022 Community Meeting, a November 28, 2022 joint City
Council/PTC meeting, a March 8, 2023 PTC hearing, and the May 8, 2023 joint City Council/PTC
hearing. The City’s Housing Element website, www.paloaltohousingelement.com, serves as the
library for draft and final documents, past and upcoming meetings.
ENVIRONMENTAL REVIEW
Consultants prepared an Addendum to the Comprehensive Plan Environmental Impact Report
(EIR) to analyze the potential environmental impacts of the 2023-2031 Draft Housing Element.
This includes the implementation of Program 1.1 and the associated increase in housing
production including and beyond what was projected by the RHNA and Housing Element sites
inventory.
ATTACHMENTS
Attachment A: Amendments to the Land Use Element of the Comprehensive Plan
Attachment B: Amendments to Title 18 to Implement Housing Element Program 1.1
Attachment C: Housing Element Program 1.1: Adequate Sites Inventory
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Attachment D: Excerpt from Chapter 4 of the Adopted Housing Element
AUTHOR/TITLE:
Jean Eisberg, Consultant
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2LAN D U SE AND
CO MMUN ITY DESIG N
VISION: Palo Alto’s land use decisions shall balance our future
growth needs with the preservation of our neighborhoods,
address climate protection priorities through sustainable
development near neighborhood services and enhance the
quality of life of all neighborhoods.
L.
INTRODUCTION
The Land Use and Community Design Element sets the foundation for future
preservation, growth and change in Palo Alto and serves as the blueprint for the
development of public and private property in the city. It includes policies and
programs intended to balance natural resources with future community needs in a
way that makes optimal use of available land, to create attractive buildings and
public spaces that reinforce Palo Alto’s sense of place and community, to preserve
and enhance quality of life in Palo Alto neighborhoods, to support thriving
commercial areas that meet the needs of local residents, and to maintain Palo Alto's
role in the success of the surrounding region.
This Element meets the State-mandated requirements for a Land Use Element. It
defines categories for the location and type of public and privates uses of land under
the City's jurisdiction; it recommends standards for population density and building
intensity on land covered by the Comprehensive Plan; and it includes a Land Use
Map (Map L-6) and Goals, Policies and Programs to guide land use distribution in
the city. By satisfying these requirements, the Land Use and Community Design
Element lays out the basic guidelines and standards upon which all of the other
Comprehensive Plan elements rely and build. Other elements of the Plan
correspond with the land use categories and policy direction contained in this
Element, while providing more specialized guidance focused on particular topics,
such as transportation or conservation.
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P A L O A L T O C O M P R E H E N S I V E P L A N
L A N D U S E A N D C O M M U N I T Y D E S I G N E L E M E N T
CONNECTIONS TO OTHER ELEMENTS
The Land Use and Community Design Element is replete with direct connections to
all of the other elements of the Comprehensive Plan. Its guidance for land uses is
strongly linked to the Housing Element’s prescriptions for residential development,
even though the Housing Element is cyclically updated on a separate State-
mandated timetable. The inextricable tie between land use and transportation is
clearly apparent both in this Element and the Transportation Element, as the co-
location of land uses significantly affects the ability of transit, walking and biking to
replace vehicle travel, in addition to capitalizing on the presence of rail service in
Palo Alto. The success of programs in the Natural Environment and Safety Elements
are largely dependent on land uses decisions that protect the environment as well as
people and property. The Land Use Element dovetails with both the quality of life
initiatives in the Community Services and Facilities Element, and the prosperity
objectives of the Business and Economics Element.
PLANNING CONTEXT
N ATURAL E NVIRONMENT
With a backdrop sweeping from forested hills to the Bay, Palo Alto is framed by
natural beauty. Views of the foothills contribute a sense of enclosure and a reminder
of the close proximity of open space and nature. Views of the baylands provide a
strong connection to the marine environment and the East Bay hills. Together with
the city’s marshland, salt ponds, sloughs, creeks and riparian corridors, these natural
resources, clearly visible in the aerial photograph in Map L-1, are a major defining
feature of Palo Alto’s character.
Preserving the city’s attractive and valuable natural features is important for a
number of reasons. Ecologically, these areas provide key habitat for wildlife, create a
buffer from developed areas and act as a natural filtration system for storm water
runoff. For the community, they represent an important facet of the look and feel of
Palo Alto, contributing to a sense of place both through direct public access to
natural areas and the views that establish Palo Alto’s local scenic routes.
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P A L O A L T O C O M P R E H E N S I V E P L A N
L A N D U S E
S A N
F R A N C I S C O
B A YRedwood City
East Palo Alto
Atherton
£¤
101Menlo Park
Stanford
University
PALO
ALTO
§¨¦280
Stanford
Lands
Mountain View
Los AltosLos Altos Hills
·|}þ
85
§¨¦280
Sunnyvale
Railroads
City Boundary
Sphere of Influence,0 1 2 Miles
Source: City of Palo Alto, 2013; ESRI, 2016; PlaceWorks, 2016.
M A P L - 1
P A L O A L T O A E R I A L V I E W
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P A L O A L T O C O M P R E H E N S I V E P L A N
L A N D U S E A N D C O M M U N I T Y D E S I G N E L E M E N T
R EGIONAL P LANNING
Palo Alto cooperates with numerous regional partners on a range of issues of
common interest. Regional planning partners include the California Department of
Transportation (Caltrans) and other State agencies, Metropolitan Transportation
Commission and Association of Bay Area Governments, Santa Clara Valley
Transportation Authority, San Mateo County Transit District, Santa Clara County, San
Mateo County and neighboring cities. The City of Palo Alto works together with the
cities of East Palo Alto and Menlo Park on a variety of shared programs relating to
economic development, social services, education, public safety and housing.
Palo Alto also works with Mountain View, Los Altos and Los Altos Hills on joint
ventures such as fire protection and water quality control. In addition, Palo Alto
elected officials and staff participate in numerous countywide and regional planning
efforts, including via both advisory and decision-making boards and commissions.
Palo Alto also maintains a strong relationship with Stanford University. Although the
campus lies outside of the city limits, as shown in Map L-2, important Stanford-
owned lands are within Palo Alto, including Stanford Shopping Center, Stanford
Research Park and the Stanford University Medical Center. The City, Santa Clara
County and Stanford maintain an inter-jurisdictional agreement regarding
development on unincorporated Stanford lands and collaborate on selected land use
and transportation projects.
CITY EVOLUTION
E ARLY H ISTORY
There is evidence in the archaeological record of people living along San
Francisquito Creek as far back as 4000 BC, and the first widely recognized inhabitants
are the Costanoan people starting in about 1500 BC. The Costanoan are Ohlone-
speaking Native Americans who lived near the water from San Francisco Bay to
Carmel. Costanoan and earlier artifacts have been identified in the city, particularly
along the banks of San Francisquito Creek. Preservation of these resources is a high
priority for the City and essential to defining the character of the community.
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P A L O A L T O C O M P R E H E N S I V E P L A N
L A N D U S E
S A N
F R A N C I S C O
B A YRedwood City
East Palo Alto
Atherton
£¤
101Menlo Park
Stanford
University
§¨¦280
Stanford
Lands
Mountain View^_
Los AltosLos Altos Hills
·|þ}
85
§¨¦280
Sunnyvale
City Limit
Sphere of Influence
Stanford Academic Growth Boundary
Railroads^_Potential Future School Site
Stanford University Land Use Designations
Academic Campus
Campus Residential - Low Density
Campus Residential - Moderate Density
Open Space and Field Research
Campus Open Space
Special Conservation
Lake/Reservoir
Urban Service Boundary
|! Caltrain Stations012 Miles
Source: City of Palo Alto, 2013; USGS, 2010; NHD 2013; ESRI, 2010; Tiger Lines, 2010; Stanford University, 2000; PlaceWorks, 2014.
M A P L - 2
S P H E R E O F I N F L U E N C E , U R B A N S E R V I C E A R E A , A N D S T A N F O R D U N I V E R S I T Y L A N D S
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P A L O A L T O C O M P R E H E N S I V E P L A N
L A N D U S E A N D C O M M U N I T Y D E S I G N E L E M E N T
CITY D EVELOPMENT
From its earliest days, Palo Alto has been a world-class center of knowledge and
innovation. The city incorporated in 1894 on land purchased with the specific intent
of serving the newly established Stanford University. Originally centered on
University Avenue, Palo Alto grew south and east, incorporating the older town of
Mayfield and its California Avenue district in 1925. By the 1970s, the city had almost
doubled in size, stretching into the foothills and south to Mountain View, with
commercial centers along Middlefield Road in Midtown and El Camino Real through
formerly unincorporated Barron Park, and research and development areas at the
city’s outskirts.
Today, Palo Alto covers almost 26 square miles (16,627 acres) of land, about a third
of which is open space, including 34 city-owned parks and 1,700 acres of protected
baylands. Ensuring that activities in and around the baylands, including airport
operations, occur with minimal environmental impacts is of major importance to the
City and region.
COMPACT D EVELOPMENT
Palo Alto was an early adopter of compact development principles, as embodied in
the Urban Service Area designated to manage growth in the current Comprehensive
Plan. Through this strategy, the City has endeavored to direct new development into
appropriate locations—such as along transit corridors and near employment centers—
while protecting and preserving neighborhoods as well as the open space lands that
comprise about half of the city.
S USTAINABILITY AND RESILIENCE
Palo Alto is regarded as a leader in sustainability, having adopted its first Climate
Action Plan in 2007 and continuing through the City’s multi-faceted efforts to
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P A L O A L T O C O M P R E H E N S I V E P L A N
L A N D U S E A N D C O M M U N I T Y D E S I G N E L E M E N T
eliminate the community’s dependence on fossil fuels and adapt to the potential
effects of climate change. Through the direct provision of public utility services by the
City to the community, Palo Alto is able to achieve truly outstanding energy efficiency
and water conservation. The City and community also are leaders in promoting non-
automobile transportation, waste reduction and diversion and high-quality, low-
impact development.
In addition to efficiency and conservation, the City sees an adequate housing supply
as a fundamental component of a sustainable and equitable community. As of the
adoption of this Comprehensive Plan, renting or owning a home in Palo Alto is
prohibitively expensive for many. The housing affordability crisis in Palo Alto and in
the Bay Area more broadly has a number of negative consequences, including
diminished socioeconomic diversity and increased traffic congestion as local workers
commute from distant places where housing is cheaper. In response, this Element
lays out a multi-faceted strategy to both preserve existing housing and create new
housing in a variety of types and sizes. Most new housing is anticipated to be multi-
family housing on redeveloped infill sites near housing. These policies and programs
work hand-in-hand with Housing Element programs and focus change along transit
corridors, while preserving the character of established single-family neighborhoods.
Together, all of these efforts make Palo Alto a more resilient community, able to
adjust behaviors and actions in an effort to protect and preserve environmental
resources.
CITY STRUCTURE
COMPONENTS
The city is composed of unique neighborhoods and distinct but connected
commercial centers and employment districts. Understanding how these different
components of the city structure support one another and connect to the region can
help inform land use planning. By reflecting the existing structure in its policies, Palo
Alto will ensure that it remains a community that encourages social contact and
public life and also maintains quality urban design.
R ESIDENTIAL N EIGHBORHOODS
Palo Alto’s 35 neighborhoods are characterized by housing, parks and public
facilities. Their boundaries are based on land use and street patterns and community
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P A L O A L T O C O M P R E H E N S I V E P L A N
L A N D U S E A N D C O M M U N I T Y D E S I G N E L E M E N T
perceptions. Most of the residential neighborhoods have land use classifications of
single-family residential with some also including multiple-family residential, and
transitions in scale and use often signify neighborhood boundaries.
Each neighborhood is a living reminder of the unique blend of architectural styles,
building materials, scale and street patterns that were typical at the time of its
development. These characteristics are more intact in some neighborhoods than in
others. The City strives to complement neighborhood character when installing
streets or public space improvements and to preserve neighborhoods through
thoughtful development review to ensure that new construction, additions and
remodels reflect neighborhood character.
Neighborhoods built prior to the mid-1940s generally have a traditional pattern of
development with relatively narrow streets, curbside parking, vertical curbs and street
trees between the curb and sidewalk. Many homes are oriented to the street with
parking often located to the rear of the lot.
Many later neighborhoods were shaped by Modernist design ideas popularized by
builder Joseph Eichler. The houses are intentionally designed with austere facades
and oriented towards private backyards and interior courtyards, where expansive
glass walls “bring the outside in.” Curving streets and cul-de-sacs further the sense of
house as private enclave, and flattened curbs joined to the sidewalk with no planting
strip create an uninterrupted plane on which to display the house. Some
neighborhoods built during this period contain other home styles such as California
ranch.
Both traditional and modern Palo Alto neighborhoods have fine examples of multi-
unit housing that are very compatible with surrounding single-family homes,
primarily because of their high-quality design characteristics, such as entrances and
gardens that face the street rather than the interior of the development. Examples
include duplexes and small apartment buildings near Downtown, as well as second
units and cottage courts in other areas of the city.
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P A L O A L T O C O M P R E H E N S I V E P L A N
L A N D U S E A N D C O M M U N I T Y D E S I G N E L E M E N T
COMMERCIAL C ENTERS
Centers are commercial and mixed use areas that serve as focal points of community
life. These commercial centers are distributed throughout the city, within walking or
bicycling distance of virtually all Palo Alto residents, as shown in Map L-3. There are
three basic types of Centers in Palo Alto:
h Regional Centers include University Avenue/Downtown and Stanford
Shopping Center. These areas are commercial activity hubs of citywide and
regional significance, with a mix of shopping, offices and some housing.
Downtown is characterized by two- and three-story buildings with ground
floor shops. Downtown Palo Alto is widely recognized for its mix of culture,
architecture and atmosphere of innovation, which make it a uniquely special
place. Trees, benches, outdoor seating areas, sidewalks, plazas and other
amenities make the streets pedestrian-friendly. Transit is highly accessible and
frequent. Downtown plays a key role in concentrating housing, employment,
shopping and entertainment near each other and regional rail and other
transit, exemplifying and supporting citywide sustainability and resiliency.
However, a recent cycle of economic growth has brought increased pressure
for additional office space in Downtown Palo Alto. In recent years, the
demand has become so strong that other important uses that contribute to
Downtown’s vitality, such as storefront retail, are at risk of being pushed out.
This Element includes policies and programs to preserve ground floor-retail
uses Downtown and sustain its role as a gathering place. Programs are also
included to convert some unused development potential from commercial to
residential potential in the future.
Stanford Shopping Center has evolved from its original auto-oriented design
into a premier open-air pedestrian environment known for extensive
landscaped areas surrounded by retail and dining.
h Multi-Neighborhood Centers, including California Avenue, Town and
Country Village and South El Camino Real, are retail districts that serve more
than one neighborhood with a diverse mix of uses including retail, office and
residential. They feature one- to three-story buildings with storefront windows
and outdoor seating areas that create a pedestrian-friendly atmosphere.
These centers also contain retail uses clustered around plazas and parks that
provide public gathering spaces. They can be linked to other city Centers via
transit.
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h Neighborhood Centers, such as Charleston Shopping Center, Edgewood
Plaza and Midtown Shopping Center, are small retail areas drawing customers
from the immediately surrounding area. These centers are often anchored by
a grocery or drug store and may include a variety of smaller retail shops and
offices oriented toward the everyday needs of local residents. Adjacent streets
provide walking, biking and transit connections.
E MPLOYMENT D ISTRICTS
Palo Alto’s employment districts, such as Stanford Research Park, Stanford Medical
Center, East Bayshore and San Antonio Road/Bayshore Corridor, represent a
development type not found in other parts of the city. These Districts are
characterized by large one- to four-story buildings, with some taller buildings,
separated by parking lots and landscaped areas. The Districts are accessed primarily
by automobile or employer-supported transit, though future changes in land use and
tenancy could support a shift toward transit, pedestrian and bicycle travel.
GROWTH MANAGEMENT
The pace of non-residential growth and development in Palo Alto has been
moderated by a citywide cap on non-residential development first adopted by the
City Council in 1989. Based on the demonstrated and continuous strength of the
city’s economy, and recent changes in the approach to growth management
throughout California, this Plan presents an updated cumulative growth
management and monitoring system. This system moderates the overall amount of
new office/R&D development and monitors its impacts on Palo Alto’s livability.
This updated approach uses 2015 as the baseline from which to monitor new
development and establishes a cumulative, citywide cap on office/R&D uses,
including conversions of existing square footage to office/R&D space. It also
establishes clear guidance to address what the City should do as the cap is
approached.
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P A L O A L T O G E N E R A L P L A N U P D A T E
L A N D U S E E L E M E N T
S A N
F R A N C I S C O
B A Y
East Palo Alto
Ø
1
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2Ø £¤
101
2 1
Ø
2 Ø23
Ø
1 4Stanford
University
2 Ø
1
1 Ø
3Stanford
Lands
Commercial Districts
Regional CentersØ"
1. University Avenue/Downtown
2. Stanford Shopping CenterØ"Multi-Neighborhood Centers
1. California Avenue
2. Town & Country Village
3. South El Camino Real
ØLos A "Neighborhood CentersLos Altos Hills 1. Charleston Center
2. Edgewood Plaza
3. Midtown
³³ Mixed Use Areas
1. South of Forest Area (SOFA)
2. California Avenue
×lo
§¨¦3. Alma Village280
Employment DistrictslEmployment Centers
1. Stanford Research Park
2. Stanford Medical Center
3. East Bayshore
4. San Antonio Road/Bayshore Corridor
|!Caltrain Stations
Sphere of Influence
City Boundary
Railroads
Park/Open Space
0 0.5 1 Miles
Source: City of Palo Alto, 2013; USGS, 2010; NHD 2013; ESRI, 2010; Tiger Lines, 2010; PlaceWorks, 2014.
M A P L - 3
C I T Y S T R U C T U R E
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L A N D U S E E L E M E N T
S A N
F R A N C I S C O
B A Y
Redwood City
East Palo Alto
Atherton
Menlo Park
£¤
101
Stanford
University
Stanford
Lands§¨¦280
Mountain View
Los AltosLos Altos Hills
·|}þ
85
§¨¦280
Major View Corridors
k Primary Gateways
Scenic Routes in Palo Alto
Caltrain Stations
Railroads
! !
|!
Park/Open Space
City Boundary
Sphere of Influence012 Miles
Source: City of Palo Alto, 2013; USGS, 2010; NHD 2013; ESRI, 2010; Tiger Lines, 2010; PlaceWorks, 2014.
M A P L - 4
C O M M U N I T Y D E S I G N F E A T U R E S
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L A N D U S E A N D C O M M U N I T Y D E S I G N E L E M E N T
URBAN DESIGN
The look and feel of Palo Alto is shaped by urban design, which encompasses the
wide variety of features that together form the visual character of the city. These
elements range from aesthetic to functional and include the design of buildings, the
historic character of structures and places, public spaces where people gather,
gateways or entrances to the city, street trees lining neighborhoods, art decorating
public spaces, as well as parking lots and essential infrastructure. Key community
design features are illustrated on Map L-4.
B UILDINGS
Palo Alto has many buildings of outstanding architectural merit representing a variety
of styles and periods. The best examples of these buildings are constructed with
quality materials, show evidence of craftsmanship, fit with their surroundings and
help make neighborhoods comfortable and appealing. To help achieve quality
design, the Architectural Review Board reviews buildings and site design for
commercial and multi-family residential projects. Palo Alto’s commercial and
residential buildings have received regional and national design recognition. Design
issues in residential neighborhoods include sympathetic restoration and renovation
of homes, protection of privacy if second stories are added, and efforts to make
streets more inviting to pedestrians.
H ISTORIC R ESOURCES
Palo Alto has a rich stock of historic structures and places that are important to the
city’s heritage and preserving and reusing these historic resources contributes to the
livability of Palo Alto. The City’s Historic Inventory lists approximately 400 buildings of
historical merit, with more than a dozen buildings on the National Register of
Historic Places, as well as three historic districts (Green Gables, Greenmeadow and
Professorville) and one architectural district (Ramona Street). Map L-5 illustrates
historic resources in Palo Alto.
Historic sites include the El Palo Alto Redwood, believed to be the site of a 1776
encampment of the Portola Expedition and one of 19 California Points of Historical
Interest in the city. The garage at 367 Addison that was the birthplace of Hewlett-
Packard is one of seven sites or structures listed on the California Register of Historic
Landmarks. The length of El Camino Real from San Francisco to San Diego, including
the section that passes through Palo Alto, is a State Historic Landmark. Many historic
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buildings in the city have been rehabilitated and adaptively reused as office or
commercial spaces, including former single-family homes in and near downtown.
P UBLIC S PACES , S TREETS AND P ARKING
Throughout Palo Alto are a variety of public spaces from parks and schools to plazas
and sidewalks, to cultural, religious and civic facilities. Each of these can increasingly
serve as centers for public life with gathering places, bicycle and pedestrian access,
safety-enhancing night-time lighting and clear visual access, and, in some cases,
small-scale retail uses such as cafes.
Well-designed streets also invite public use and enhance quality of life. Palo Alto’s
reputation as a gracious residential community is due not only to its fine street trees
and attractive planting areas, but also to appropriate street width for neighborhood
character, accommodation of pedestrians and bicycles, height and setbacks of
buildings and color and texture of paving materials. These components help to
ensure that streets are pleasant and safe for all travelers.
Parking lots occupy large amounts of surface area in the city. Well-designed parking
lots make efficient use of space while contributing positively to the appearance of the
surrounding area. A parking lot can provide an opportunity for open space and
outdoor amenities rather than just a repository for cars. Many parking lots in Palo
Alto include trees, landscaping and public art.
G ATEWAYS
Community identity is strengthened when the entrances to the city are clear and
memorable. In Palo Alto, these entrances or gateways include University Avenue, El
Camino Real, Middlefield Road, Oregon Expressway/Page Mill Road, San Antonio
Road and Embarcadero Road and the Palo Alto Transit Center and California Avenue
Caltrain station. Well-designed gateways are defined by natural and urban landmarks
that complement the character and identity of the neighborhood.
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Atherton
!!Green Gables!
!
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0 1 2 Miles
Source: PlaceWorks, 2016; The City of Palo Alto, 2013.
*Cultural and historic resources include Historic Structures on the City of Palo Alto Historic Inventory
(categories I, II, III, or IV), and/or Buildings on the National Register of Historic Places, and/or California
Registered Historic Landmarks, and/or Points of Historical Interest.
This map is for illustrative purposes only and does not depict the full inventory of historic
structures, landmarks, or other cultural resources in Palo Alto. For a more complete listing,
please refer to the content of the Palo Alto Comprehensive Plan and the
Cultural or historic resource*
Highways
!
City Limit associated environmental review documents.MꢀAꢀP Lꢀ-ꢀꢁ
H I S T O R I C R E S O U R C E S
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L A N D U S E A N D C O M M U N I T Y D E S I G N E L E M E N T
U RBAN F OREST
Palo Alto’s urban forest—including both public and privately owned trees—is a key
part of the community’s history, identity and quality of life. It offers enormous social,
environmental and financial benefits and is a fundamental part of Palo Alto’s sense
of place. Regular spacing of trees that are similar in form and texture provides order
and coherence and gives scale to the street. A canopy of branches and leaves
provides shade for pedestrians and creates a sense of enclosure and comfort. On the
city’s most memorable streets, trees of a single species extend historic character to
the corners of blocks, reducing the apparent width of streets and intersections and
defining the street as a continuous space. Protecting, maintaining and enhancing the
urban forest, as called for in the 2015 Urban Forest Master Plan, is among the most
effective ways to preserve Palo Alto’s character.
P UBLIC A RT
Public art helps create an inviting atmosphere for gathering, fosters economic
development and contributes to vital public spaces. Palo Alto’s public art program
reflects the City’s tradition of enriching public spaces with works of art, ranging from
the subtle inclusion of handcrafted artifacts into building architecture to more
traditional displays of sculpture at civic locations. The Municipal Code requires both
public and private projects to incorporate public art.
U TILITIES AND INFRASTRUCTURE
A city is supported by its infrastructure—features such as paving, signs and utilities.
These features represent substantial public investments and are meant to serve all
community members. Infrastructure improvements must meet current needs and
keep pace with growth and development. While the purpose of infrastructure is
usually utilitarian or functional, attention to design details can add beauty or even
improve urban design. For example, replacing a sidewalk can provide an opportunity
to create larger tree wells and provide new street trees.
State law (California Government Code Section 65302.10) requires the City to
address potential regional inequity and infrastructure deficits within disadvantaged
unincorporated communities (DUCs) in this Element. There are no DUCs within the
Palo Alto Sphere of Influence (SOI) with public services or infrastructure needs or
deficiencies.
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PALO ALTO AIRPORT
Palo Alto Airport (PAO) is a general aviation airport owned and operated by the City
of Palo Alto. PAO occupies 102 acres of land east of Highway 101 in the baylands
and has one paved runway. The airport functions as a reliever to three Bay Area
airports. PAO facilities include an air traffic control tower operated by the Federal
Aviation Administration and a terminal building. Flight clubs and fixed base operators
operate on-site, offering fuel sales, flight lessons, pilot training and aircraft sales,
rentals, maintenance and repair. From 1967 to 2015, PAO was operated by Santa
Clara County under a lease agreement. Operations and control have since been
transferred to the City and key challenges ahead include addressing deterioration of
runway conditions, addressing noise impacts and hours of operation and the
relationship between the Airport and the Baylands Master Plan.
LAND USE MAP AND LAND USE DESIGNATIONS
Map L-6 shows each land use designation within the city of Palo Alto. The land use
designations translate the elements of city structure into a detailed map that presents
the community’s vision for future land use development and conservation on public
and private land in Palo Alto through the year 2030. Residential densities are
expressed in terms of dwelling units per acre. Population densities per acre are not
absolute limits.
Building intensities for non-residential uses are expressed in terms of floor area ratio
(FAR), which is the ratio of gross building floor area (excluding areas designated for
parking, etc.) to net lot area, both expressed in square feet. FAR does not regulate
building placement or form, only the spatial relationship between building size and
lot size; it represents an expectation of the overall intensity of future development.
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The maximums assigned to the land use designations below do not constitute
entitlements, nor are property owners or developers guaranteed that an individual
project, when tested against the General Plan’s policies, will be able or permitted to
achieve these maximums.
L AND U SE D EFINITIONS
OPEN SPACE
Publicly Owned Conservation Land : Open lands whose primary purpose is the
preservation and enhancement of the natural state of the land and its plants and
animals. Only resource management, recreation and educational activities
compatible with resource conservation are allowed.
Publi c Park: Open lands whose primary purpose is public access for active
recreation and whose character is essentially urban. These areas, which may have
been planted with non-indigenous landscaping, may provide access to nature within
the urban environment and require a concerted effort to maintain recreational
facilities and landscaping.
Streamside Open Space: This designation is intended to preserve and enhance
corridors of riparian vegetation along streams. Hiking, biking and riding trails may be
developed in the streamside open space. The corridor will generally vary in width up
to 200 feet on either side of the center line of the creek. However, along San
Francisquito Creek between El Camino Real and the Sand Hill Road bridge over the
creek, the open space corridor varies in width between approximately 80 and 310
feet from the center line of the creek. The aerial delineation of the open space in this
segment of the corridor, as opposed to other segments of the corridor, is shown to
approximate scale on the Proposed Land Use and Circulation Map.
Open Space/Controlle d Development : Land having all the characteristics of open
space but where some development may be allowed on private properties. Open
space amenities must be retained in these areas. Residential densities range from 0.1
to 1 dwelling unit per acre but may rise to a maximum of 2 units per acre where
second units are allowed, and population densities range from 1 to 4 persons per
acre. Other uses such as agricultural, recreational and non-residential uses may be
allowed consistent with the protection and preservation of the inherent open space
characteristics of the land.
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Baylands Master Plan
SOFA I CAP
SOFA II CAP
S A N
F R A N C I S C O
B A YEast Palo Alto Byxbee
Park
Menlo Park
¤
101
Baylands
Preserve
|!
|!|ÿ82Stanford
University
Mountain View
§¨¦
Los Altos
S A N
F R A N C I S C O
B A YLos Altos Hills
0 0.125 0.25 0.5 0.75 1
Miles
Comprehensive Plan Land Use Designations
Residential Other Campus Open Space
Special Conservation
Lake/Reservoir
Single Family Res SOFA II CAP
Multi-Family Res
Mixed Use
SOFA I CAP
School District Land |Caltrain Stations
Urban Service Area
City Boundary
Commercial Major Institution/Special Facility
Streamside Open Space
Public Park
Hotel Commercial
Service Commercial Sphere of Influence
RailroadsNeighborhood Commercial
Regional/Community Commercial
Open Space/Controlled Development
Public Conservation Land
Business/Industrial Stanford University Land Use Designations
Academic CampusLight Industrial
Research/Office Park Campus Residential - Low Density
Campus Residential - Moderate Density
Open Space/Field Research
Source: ESRI, 2010; Tiger Lines, 2010; USGS, 2010; NHD, 2013; City of Palo Alto, 2013; PlaceWorks, 2015.
M A P L - 6
C O M P R E H E N S I V E P L A N L A N D U S E D E S I G N A T I O N S
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R ESIDENTIAL
Single-Family Residential: This designation applies to residential neighborhoods
primarily characterized by detached single-family homes, typically with one dwelling
unit on each lot. Private and public schools and churches are conditional uses
requiring permits. Accessory dwelling units or duplexes are allowed subject to certain
size limitations and other development standards and duplexes may be allowed in
select, limited areas where they would be compatible with neighborhood character
and do not create traffic and parking problems. The net density in single family areas
, except on
Housing
Element
opportunity
sites, for which
higher density
standards may will range from 1 to 7 units per acre, but rises to a maximum of 14 units on parcels
be specified in
the Zoning
Ordinance .
where second units or duplexes occur. Population densities will range from 1 to 30
persons per acre.
Multiple-Family Residential: The permitted number of housing units will vary by
area, depending on existing land use, proximity to major streets and public transit,
distance to shopping and environmental problems. Net densities will range from 8 to
40 units and 8 to 90 persons per acre. Density should be on the lower end of the
scale next to single-family residential areas. Densities higher than what is permitted
, except on
Housing
Element
opportunity
sites, for which
higher density
standards may may be allowed where measurable community benefits will be derived, services andbe specified in
the Zoning
Ordinance .
facilities are available, and the net effect will be consistent with the Comprehensive
Plan. Population densities will range up to 2.25 persons per unit by 2030.
Village Residential: Allows residential dwellings that are designed to contribute to
the harmony and pedestrian orientation of a street or neighborhood. Housing types
include single-family houses on small lots, second units, cottage clusters, courtyard
housing, duplexes, fourplexes and small apartment buildings. Design standards will
be prepared for each housing type to ensure that development successfully
contributes to the street and neighborhood and minimizes potential negative
impacts. Net densities will range up to 20 units per acre. Population densities will
range up to 2.25 persons per unit by 2030.
Transit-Oriented Residential: Allows higher density residential dwellings in the
University Avenue/Downtown and California Avenue commercial centers within a
walkable distance, approximately 2,500 feet, of the City’s two multi-modal transit
stations. The land use category is intended to generate residential densities that
support substantial use of public transportation and especially the use of Caltrain.
Design standards will be prepared to ensure that development successfully
contributes to the street and minimizes potential negative impacts. Individual project
requirements will be developed, including parking, to ensure that a significant
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portion of the residents will use alternative modes of transportation. Net density will
range up to 50 units per acre, with minimum densities to be considered during
development of new City zoning regulations. Population densities will range up to
2.25 per person per unit by 2030.
C OMMERCIAL
Neighborhood Commercial: Includes shopping centers with off-street parking or a
cluster of street-front stores that serve the immediate neighborhood. Examples
include Charleston Center, Edgewood Center and Midtown. Typical uses include
supermarkets, bakeries, drugstores, variety stores, barber shops, restaurants, self-
service laundries, dry cleaners and hardware stores. In locations along El Camino
Real and Alma Street, residential and mixed use projects may also locate in this
category. Non-residential FARs will range up to 0.4. Consistent with the
Comprehensive Plan’s encouragement of housing near transit centers, higher density
multi-family housing may be allowed in specific locations. , generally within 1/2 mile of
high quality transit.
Regional/Community Commercial: Larger shopping centers and districts that have
a wider variety of goods and services than the neighborhood shopping areas. They
rely on larger trade areas and include such uses as department stores, bookstores,
furniture stores, toy stores, apparel shops, restaurants, theaters and non-retail
services such as offices and banks. Examples include Stanford Shopping Center,
Town and Country Village and University Avenue/Downtown. Non-retail uses such as
medical and dental offices may also locate in this designation; software development
may also locate Downtown. In some locations, residential and mixed use projects
may also locate in this category. Non-residential FARs range from 0.35 to 2.0.
Consistent with the Comprehensive Plan’s encouragement of housing near transit, generally withincenters, higher density multi-family housing may be allowed in specific locations.1/2 mile of high
quality transit.
Service Commercial: Facilities providing citywide and regional services and relying
on customers arriving by car. These uses do not necessarily benefit from being in
high volume pedestrian areas such as shopping centers or Downtown. Typical uses
include auto services and dealerships, motels, lumberyards, appliance stores and
restaurants, including fast service types. In almost all cases, these uses require good
automobile and service access so that customers can safely load and unload without
impeding traffic. In some locations, residential and mixed-use projects may be
appropriate in this land use category. Examples of Service Commercial areas include
San Antonio Road, El Camino Real and Embarcadero Road northeast of the Bayshore
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Freeway. Non-residential FARs will range up to 0.4. Consistent with the
Comprehensive Plan’s encouragement of housing near transit centers, higher density
, generally within 1/2 mile
of high quality transit.multi-family housing may be allowed in specific locations.
Mixed Use: The Mixed Use designation is intended to promote pedestrian-oriented
places that layer compatible land uses, public amenities and utilities together at
various scales and intensities. The designation allows for multiple functions within
the same building or adjacent to one another in the same general vicinity to foster a
mix of uses that encourages people to live, work, play and shop in close proximity.
Most typically, mixed-use developments have retail on the ground floor and
residences above. This category includes Live/Work, Retail/Office, Residential/Retail
and Residential/Office development. FARs will range up to 1.15, although
development located along transit corridors or near multi-modal centers will range
up to 2.0 FAR with up to 3.0 FAR possible where higher FAR would be an incentive
to meet community goals such as providing affordable housing. The FAR above 1.15
must be used for residential purposes. FAR between 0.15 and 1.15 may be used for
residential purposes. As of the adoption of this Comprehensive Plan, the Mixed Use
designation is currently only applied in the SOFA area. Consistent with the
Comprehensive Plan’s encouragement of housing near transit centers, higher density, generally within 1/2 mile of
high quality transit.multi-family housing may be allowed in specific locations.
Commercial Hotel: This category allows facilities for use by temporary overnight
occupants on a transient basis, such as hotels and motels, with associated
conference centers and similar uses. Restaurants and other eating facilities, meeting
rooms, small retail shops, personal services and other services ancillary to the hotel
are also allowed. This category can be applied in combination with another land use
category. FAR currently ranges up to 2.0 for the hotel portion of the site. An
implementation program indicates that the City will explore increasing this FAR.
Research/Office Park: Office, research and manufacturing establishments whose
operations are buffered from adjacent residential uses. Stanford Research Park is an
example. Other uses that may be included are educational institutions and child care
facilities. Compatible commercial service uses such as banks and restaurants and
residential or mixed-uses that would benefit from the proximity to employment
centers, will also be allowed. Additional uses, including retail services, commercial
recreation, churches and private clubs may also be located in Research/Office Park
areas, but only if they are found to be compatible with the surrounding area through
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the conditional use permit process. In some locations, residential and mixed-use
projects may also locate in this category. Maximum allowable FAR ranges from 0.3 to
0.5, depending on site conditions. Consistent with the Comprehensive Plan, multi-
On Housing Element opportunity sites, FAR will
range from 1.25 to 2.5, as specified in the
Zoning Ordinance.
family housing may be allowed in specific locations.
Light Industrial: Wholesale and storage warehouses and the manufacturing,
processing, repairing and packaging of goods. Emission of fumes, noise, smoke, or
other pollutants is strictly controlled. Examples include portions of the area south of
Oregon Avenue between El Camino Real and Alma Street that historically have
included these land uses, and the San Antonio Road industrial area. Compatible
residential and mixed use projects may also be located in this category. FAR will
range up to 0.5. Consistent with the Comprehensive Plan’s encouragement of
housing near transit centers, higher density multi-family housing may be allowed in
On Housing Element opportunity sites, FAR will range from 1.5 to
2.5, as specified in the Zoning Ordinance.specific locations.
I NSTITUTIONAL
School District Lands: Properties owned or leased by public school districts and
used for educational, recreational, or other non-commercial, non-industrial purposes.
FAR may not exceed 1.0.
Major Institution/Special Facilities: Institutional, academic, governmental and
community service uses and lands that are either publicly owned or operated as
non-profit organizations. Examples are hospitals and City facilities. Consistent with
the Comprehensive Plan’s encouragement of housing near transit centers, higher
density multi-family housing may be allowed in specific locations.
Major Institution/University Lands: Academic and academic reserve areas of
Stanford University. Population density and building intensity limits are established
by conditional use permit with Santa Clara County. These lands are further
designated by the following sub-categories of land use:
h Major Institution/University Lands/Campus Single-Family Residential:
Single-family areas where the occupancy of the units is significantly or totally
limited to individuals or families affiliated with the institution.
h Major Institution/University Lands/Campu s Multiple Family Residential:
Multiple family areas where the occupancy of the units is significantly or totally
limited to individuals or families affiliated with the institution.
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h Major Institution/University Lands/Campus Educational Facilities:
Academic lands with a full complement of activities and densities that give
them an urban character. Allowable uses are academic institutions and
research facilities, student and faculty housing and support services. Increases
in student enrollment and faculty/staff size must be accompanied by
measures that mitigate traffic and housing impacts.
h Major Institution/University Lands/Academic Reserve and Open Space:
Academic lands having all the characteristics of open space but upon which
some academic development may be allowed provided that open space
amenities are retained. These lands are important for their aesthetic and
ecological value as well as their potential for new academic uses.
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GOALS, POLICIES AND PROGRAMS
G ROWTH M ANAGEMENT
GOAL L-1 A compact and resilient city providing residents and visitors with attractive neighborhoods,
work places, shopping districts, public facilities and open spaces.
C ONCENTRATING D EVELOPMENT W ITHIN THE U RBAN S ERVICE A REA
Policy L-1.1 Maintain and prioritize Palo Alto’s varied residential neighborhoods while sustaining the vitality of its commercial
areas and public facilities.
Policy L-1.2 Limit future urban development to currently developed lands within the urban service area. The boundary of
the urban service area is otherwise known as the urban growth boundary. Retain undeveloped land west of
Foothill Expressway and Junipero Serra as open space, with allowances made for very low-intensity
development consistent with the open space character of the area. Retain undeveloped land northeast of
Highway 101 as open space.
Policy L-1.3
Policy L-1.4
Infill development in the urban service area should be compatible with its surroundings and the overall scale
and character of the city to ensure a compact, efficient development pattern.
Commit to creating an inventory of below market rate housing for purchase and rental. Work with neighbors,
neighborhood associations, property owners and developers to identify barriers to infill development of below
market rate and more affordable market rate housing and to remove these barriers, as appropriate. Work with
these same stakeholders to identify sites and facilitate opportunities for below market rate housing and housing
that is affordable.
R EGULATING L AND U SE
Policy L-1.5
Policy L-1.6
Regulate land uses in Palo Alto according to the land use definitions in this Element and Map L-6.
Encourage land uses that address the needs of the community and manage change and development to benefit
the community.
Program L1.6.1 Review regulatory tools available to the City and identify actions to enhance and preserve the
livability of residential neighborhoods and the vitality of commercial and employment
districts, including improved code enforcement practices.
Policy L-1.7 Use coordinated area plans to guide development, such as to create or enhance cohesive neighborhoods in
areas of Palo Alto where significant change is foreseeable. Address both land use and transportation, define the
desired character and urban design traits of the areas, identify opportunities for public open space, parks and
recreational opportunities, address connectivity to and compatibility with adjacent residential areas; and include
broad community involvement in the planning process.
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R EGIONAL C OOPERATION
Policy L-1.8 Maintain an active engagement with Santa Clara County, San Mateo County, neighboring cities, other public
agencies including school districts and Stanford University regarding land use and transportation issues.
Program L1.8.1 Maintain and update as appropriate the 1985 Land Use Policies Agreement that sets forth the
land use policies of the City, Santa Clara County and Stanford University with regard to
Stanford unincorporated lands.
Policy L-1.9 Participate in regional strategies to address the interaction of jobs, housing balance and transportation issues.
G ROWTH MANAGEMENT AND M ONITORING
Policy L-1.10 Maintain a citywide cap of 1.7 million new square
feet of office/R&D development, exempting medical
office uses in the Stanford University Medical
Center (SUMC) vicinity. Use January 1, 2015 as the
baseline and monitor development towards the cap
on an annual basis. Require annual monitoring to
assess the effectiveness of development
requirements and determine whether the cap and
the development requirements should be adjusted.
Continue to exempt medical, governmental and
institutional uses from the cap on office/R&D
development.
Program L1.10.1 Reevaluate the cumulative cap when the amount of new office/R&D square footage entitled
since January 1, 2015 reaches 67 percent of the allowed square footage, or 1,139,000 square
feet. Concurrently consider removal or potential changes to the cap and/or to the amount of
additional development permitted by the City’s zoning ordinance.
Policy L-1.11
Policy L-1.12
Hold new development to the highest development standards in order to maintain Palo Alto’s livability and
achieve the highest quality development with the least impacts.
The City will monitor key community indicators on a regular basis to determine whether the policies of this plan
and the efforts of Palo Alto residents and businesses are effective at promoting livability. Suggested indicators
and monitoring frequency are listed in Table L-1.
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TABLE L-1 COMMUNITY METRICS
Measure Metric Recommended Monitoring Frequency
Annually as part of Earth Day Report80% below 1990 emissions by 2030 (S/CAP
goal)Greenhouse Gas Emissions
Vehicle Miles Traveled (VMT) per Capita Decrease year over year
Jobs/Housing Balance (Expressed as a
Ratio of Jobs to Employed Residents)
Annually as part of Earth Day Report
Every 4 yearsRatio of jobs to employed residents
Annually as part of report to California
Department of Housing and Community
Development (HCD)
Below Market Rate (BMR) Units Number of units
Annual Report to State Housing and
Community Development Department
Change in PM peak hour traffic volumes at
10 representative local intersections
Percent of residents who live within ½-mile
of a city park
Progress toward Housing Element Goals
Traffic Volumes on City Streets
Availability of Parks
Annually as part of report to HCD
Every 2 years
Every 4 years
Changes in student enrollment at public
elementary, middle and high schoolsPAUSD School Enrollments Annually
A S USTAINABLE C OMMUNITY
GOAL L-2 An enhanced sense of “community” with development designed to foster public life, meet
citywide needs and embrace the principles of sustainability.
Policy L-2.1 Maintain a citywide structure of Residential
Neighborhoods, Centers and Employment Districts.
Integrate these areas with the City’s and the region’s
transit and street system.
Policy L-2.2 Enhance connections between commercial and
mixed use centers and the surrounding residential
neighborhoods by promoting walkable and bikeable
connections and a diverse range of retail and
services that caters to the daily needs of residents.
Program L2.2.1 Explore whether there are appropriate locations to allow small-scale neighborhood-serving
retail facilities such as coffee shops and corner stores in residential areas.
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Policy L-2.3
Policy L-2.4
As a key component of a diverse, inclusive community, allow and encourage a mix of housing types and sizes,
integrated into neighborhoods and designed for greater affordability, particularly smaller housing types, such as
studios, co-housing, cottages, clustered housing, accessory dwelling units and senior housing.
Use a variety of strategies to stimulate housing, near retail, employment, and transit, in a way that connects to
and enhances existing neighborhoods.
Program L2.4.1 Amend the Housing Element to eliminate housing sites along San Antonio Road and increase
residential densities in Downtown and the California Avenue area to replace potential units
from the sites eliminated.
Program L2.4.2 Allow housing at Stanford Shopping Center, provided that adequate parking and vibrant retail
is maintained and no reduction of retail square footage results from the new housing.
Program L2.4.3 Allow housing on the El Camino Real frontage of the Stanford Research Park. Explore multi-
family housing elsewhere in the Stanford Research Park and near Stanford University
Medical Center (SUMC).
Program L2.4.4 Assess non-residential development potential in the Community Commercial, Service
Commercial and Downtown Commercial Districts (CC, CS and CD) and the Neighborhood
Commercial District (CN), and convert non-retail commercial FAR to residential FAR, where
appropriate. Conversion to residential capacity should not be considered in Town and
Country Village.
Program L2.4.5 Update the municipal code to include zoning changes that allow a mix of retail and
residential uses but no office uses. The intent of these changes would be to encourage a mix
of land uses that contributes to the vitality and walkability of commercial centers and transit
corridors.
Program L2.4.6 Explore changing the Transfer of Development Rights (TDR) ordinances for both buildings of
historic significance and for seismic retrofits so that transferred development rights may be
used for residential capacity.
Program L2.4.7 Explore mechanisms for increasing multi-family housing density near multimodal transit
centers.
Program L2.4.8 Identify development opportunities for BMR and more affordable market rate housing on
publicly owned properties in a way that is integrated with and enhances existing
neighborhoods.
Policy L-2.5 Support the creation of affordable housing units for middle to lower income level earners, such as City and
school district employees, as feasible.
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Program L2.5.1 Collaborate with PAUSD in
exploring opportunities to build
housing that is affordable to
school district employees.
Policy L-2.6
Policy L-2.7
Create opportunities for new mixed use
development consisting of housing and retail.
Support efforts to retain housing that is more
affordable in existing neighborhoods, including a
range of smaller housing types.
Program L2.7.1 Review development standards to
discourage the net loss of
housing units.
Policy L-2.8 When considering infill redevelopment, work to minimize displacement of existing residents.
Program L2.8.1 Conduct a study to evaluate various possible tools for preventing displacement of existing
residents.
Program L2.8.2 Develop and implement a system to inventory the characteristics of existing housing units
and track changes in those characteristics on a regular basis. Make the information publicly
available.
Policy L-2.9
Policy L-2.10
Facilitate reuse of existing buildings.
Ensure regular coordination between the City and PAUSD on land development activities and trends in Palo
Alto, as well as planning for school facilities and programs. Under State law, impacts on school facilities cannot
be the basis for requiring mitigation beyond the payment of school fees or for denying development projects or
legislative changes that could result in additional housing units. The City will, however, assess the reasonably
foreseeable environmental impacts of development projects that result in new school construction or
enrollment.
Program L2.10.1 Collaborate with PAUSD to plan for space to accommodate future school expansions or new
school sites, and evaluate zoning space to accommodate new schools.
Policy L-2.11
Policy L-2.12
Encourage new development and redevelopment to incorporate greenery and natural features such as green
rooftops, pocket parks, plazas and rain gardens.
Ensure that future development addresses potential risks from climate change and sea level rise.
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D ISTINCT N EIGHBORHOODS
GOAL L-3 Safe, attractive residential neighborhoods, each with its own distinct character and within
walking distance of shopping, services, schools and/or other public gathering places.
N EIGHBORHOOD C OMPATIBILITY
Policy L-3.1
Policy L-3.2
Ensure that new or remodeled structures are compatible with the neighborhood and adjacent structures.
Preserve residential uses from conversion to office or short-term rentals.
Program L3.2.1 Evaluate and implement strategies to prevent conversion of residential and neighborhood-
serving retail space to office or short-term vacation rentals.
Policy L-3.3 Recognize the contribution of cottage cluster housing to the character of Palo Alto and retain and encourage this
type of development.
R ESIDENTIAL D ESIGN
Policy L-3.4 Ensure that new multi-family buildings, entries and outdoor spaces are designed and arranged so that each
development has a clear relationship to a public street.
Policy L-3.5 Avoid negative impacts of basement construction for single-family homes on adjacent properties, public
resources, and the natural environment.
Program L3.5.1 Develop a program to assess and manage both the positive and negative impacts of
basement construction in single family homes on the community and the environment,
including:
h Impacts to the natural environment, such as potential impacts to the tree canopy,
groundwater supply or quality and soil compaction.
h Safety issues such as increased surface flooding increased groundwater intrusion with sea
level rise, emergency access and egress, or sewage backflows.
C OMMERCIAL C ENTERS
GOAL L-4
Inviting pedestrian scale centers that offer a variety of retail and commercial services andprovide focal points and community gathering places for the city’s residential neighborhoods
and employment districts.
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C OMMERCIAL C ENTERS AND M IXED U SE A REAS
Policy L-4.1 Encourage the upgrading and revitalization of selected Centers in a manner that is compatible with the character
of surrounding neighborhoods, without loss of retail and existing small, local businesses.
Policy L-4.2 Preserve ground-floor retail, limit the displacement of existing retail from neighborhood centers and explore
opportunities to expand retail.
Program L4.2.1 Study the overall viability of ground-floor retail requirements in preserving retail space and
creating an active street environment, including the types of locations where such
requirements are most effective.
Program L4.2.2 Evaluate the effectiveness of formula retail limits adopted for California Avenue. Develop
incentives for local small businesses where warranted.
Program L4.2.3 Explore and potentially support new, creative and innovative retail in Palo Alto.
Policy L-4.3
Policy L-4.4
Encourage street frontages that contribute to retail vitality in all Centers. Reinforce street corners in a way that
enhances the pedestrian realm or that form corner plazas. Include trees and landscaping.
Ensure all Regional Centers and Multi-Neighborhood Centers provide centrally located gathering spaces that
create a sense of identity and encourage economic revitalization. Encourage public amenities such as benches,
street trees, kiosks, restrooms and public art.
Program L4.4.1 Study the feasibility of using public and private funds to provide and maintain landscaping
and public spaces such as parks, plazas, sidewalks and public art within commercial areas.
Program L4.4.2 Through public/private cooperation provide well-signed, clean and accessible restrooms.
Program L4.4.3 Collaborate with merchants to enhance the appearance of streets and sidewalks within all
Centers. Encourage the formation of business improvement districts and undertake a
proactive program of maintenance, repair, landscaping and enhancement.
Program L4.4.4 Identify priority street improvements that could make a substantial contribution to the
character of Centers, such as widening sidewalks, narrowing travel lanes, creating medians,
restriping to allow diagonal parking and planting trees.
Policy L-4.5 Support local-serving retail, recognizing that it provides opportunities for local employment, reduced commute
times, stronger community connections and neighborhood orientation.
Program L4.5.1 Revise zoning and other regulations as needed to encourage the preservation of space to
accommodate small businesses, start-ups and other services.
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Program L4.5.2 Consider planning, regulatory, or other incentives to encourage property owners to include
smaller office spaces in their buildings to serve small businesses, non-profit organizations,
and independent professionals.
H OTELS
Policy L-4.6 Sites within or adjacent to existing commercial areas and corridors are suitable for hotels. Give preference to
housing versus hotel use on sites adjacent to predominantly single-family neighborhoods.
Program L4.6.1 Explore increasing hotel FAR from 2.0 to 3.0 in the University Avenue/Downtown area and
2.5 in areas outside of Downtown.
R EGIONAL C ENTERS
University Avenue/Downtown
Policy L-4.7 MaintainandenhancetheUniversityAvenue/Downtown area as a major commercial center of the City, with a mix
of commercial, civic, cultural, recreational and residential uses. Promote quality design that recognizes the
regional and historical importance of the area and reinforces its pedestriancharacter.
Policy L-4.8 Ensure that University Avenue/Downtown is pedestrian-friendly and supports bicycle use. Use public art, trees,
bicycle racks and other amenities to create an environment that is inviting to pedestrians and bicyclists.
Program L4.8.1 Prepare a Coordinated Area Plan for Downtown.
Program L4.8.2 Study the feasibility of converting parts of University Avenue to a pedestrian zone.
Stanford Shopping Center
Policy L-4.9 Maintain Stanford Shopping Center as one of the Bay
Area’s premiere regional shopping centers. Promote
bicycle and pedestrian use and encourage any new
development at the Center to occur through infill.
Program L4.9.1 While preserving adequate parking
to meet demand, identify strategies
to reuse surface parking lots.
Program L4.9.2 Explore adding additional Floor Area
Ratio (FAR) for retail at Stanford
Shopping Center.
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M ULTI -N EIGHBORHOOD C ENTERS
California Avenue
Policy L-4.10 Maintain the existing scale, character and function
of the California Avenue business district as a
shopping, service and office center intermediate
in function and scale between Downtown and the
smaller neighborhood business areas.
Program L4.10.1 Prepare a coordinated area plan
for the North Ventura area and
surrounding California Avenue
area. The plan should describe a
vision for the future of the North
Ventura area as a walkable neighborhood with multi-family housing, ground floor retail, a
public park, creek improvements and an interconnected street grid. It should guide the
development of the California Avenue area as a well-designed mixed use district with diverse
land uses and a network of pedestrian-oriented streets.
Program L4.10.2 Create regulations for the California Avenue area that encourage the retention or
rehabilitation of smaller buildings to provide spaces for existing retail, particularly local, small
businesses.
Policy L-4.11 Improve the transition between the California-Cambridge area and the single family residential neighborhood of
Evergreen Park. Avoid abrupt changes in scale and density between the two areas.
Town and Country Village
Policy L-4.12 Recognize and preserve Town and Country Village
as an attractive retail center serving Palo Altans and
residents of the wider region. Future development
at this site should preserve its existing amenities,
pedestrian scale and architectural character while
also improving safe access for bicyclists and
pedestrians and increasing the amount of bicycle
parking.
Policy L-4.13
Policy L-4.14
In Town and Country Village, encourage a vibrant
retail environment and urban greening.
In Town and Country Village, encourage improvement of pedestrian, bicycle and auto circulation and
landscaping improvements, including maintenance of existing oak trees and planting additional trees.
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El Camino Real
Policy L-4.15 Recognize El Camino Real as both a local serving and regional serving corridor, defined by a mix of commercial
uses and housing.
N EIGHBORHOOD C ENTERS
Policy L-4.16 Improve the local-serving focus, and provide safe pedestrian, bicycle and multimodal access to all three Palo
Alto Neighborhood Centers – Charleston Shopping Center, Edgewood Plaza and Midtown Shopping Center.
Support their continued improvement and vitality.
Program L4.16.1 Maintain distinct neighborhood shopping areas that are attractive, accessible and convenient
to nearby residents.
Policy L-4.17
Policy L-4.18
Encourage maximum use of Neighborhood Centers by ensuring that the publicly maintained areas are clean,
well-lit and attractively landscaped.
Maintain Midtown Shopping Center as an attractive, pedestrian-oriented, one- to two-story Neighborhood
Center with diverse local-serving uses and adequate parking, and a network of pedestrian-oriented streets, ways
and gathering places. Encourage retention of Midtown’s grocery store and a variety of neighborhood retail
shops and services.
E MPLOYMENT D ISTRICTS
GOAL L-5 High quality employment districts, each with their own distinctive character and each
contributing to the character of the city as a whole.
Policy L-5.1 Foster compact Employment Districts developed in a
way that facilitates transit, pedestrian and bicycle
travel. Provide mixed uses to reduce the number of
auto trips.
Program L5.1.1 Explore with Stanford University
various development options for
adding to the Stanford Research
Park a diverse mix of uses,
including residential, commercial
hotel, conference center, commercial space for small businesses and start-ups, retail, transit
hub and other community-supporting services that are compatible with the existing uses, to
create a vibrant innovation-oriented community.
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Policy L-5.2 Provide landscaping, trees, sidewalks, pedestrian path and connections to the citywide bikeway system within
Employment Districts. Pursue opportunities to include sidewalks, paths, low water use landscaping, recycled
water and trees and remove grass turf in renovation and expansion projects.
Policy L-5.3
Policy L-5.4
Design paths and sidewalks to be attractive and comfortable and consistent with the character of the area where
they are located.
Maintain the East Bayshore and San Antonio Road/Bayshore Corridor areas as diverse business and light
industrial districts.
GOAL L-6 Well-designed building s that creat e coherent developmen t pattern s and enhance city streets
an d public spaces.
D ESIGN OF B UILDINGS AND P UBLIC S PACE
Policy L-6.1 Promote high-quality design and site
planning that is compatible with
surrounding development and public
spaces.
Program L6.1.1 Promote
programs and other
forms of public
awards
recognition for projects
of architectural merit
that contribute positively
to the community.
Policy L-6.2
Policy L-6.3
Use the Zoning Ordinance, design review process, design guidelines and Coordinated Area Plans to ensure high
quality residential and commercial design and architectural compatibility.
Encourage bird-friendly design.
Program L6.3.1 Develop guidelines for bird-friendly building design that minimizes hazards for birds and
reduces the potential for collisions.
Policy L-6.4
Policy L-6.5
In areas of the City having a historic or consistent design character, encourage the design of new development
to maintain and support the existing character.
Guide development to respect views of the foothills and East Bay hills along public street corridors in the
developed portions of the City.
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Policy L-6.6 Design buildings to complement streets and public spaces; to promote personal safety, public health and well-
being; and to enhance a sense of community safety.
Program L6.6.1 Modify design standards to ensure that mixed use development promotes a pedestrian-
friendly relationship to the street, including elements such as screened parking or
underground parking, street-facing windows and entries, and porches, windows, bays and
balconies along public ways, and landscaping, and trees along the street. Avoid blank or solid
walls at street level.
Policy L-6.7 Where possible, avoid abrupt changes in scale and density between residential and non-residential areas and
between residential areas of different densities. To promote compatibility and gradual transitions between land
uses, place zoning district boundaries at mid-block locations rather than along streets wherever possible.
Program L6.7.1 Implement architectural standards to assure they effectively address land use transitions.
Support existing regulations that preserve exposure to natural light for single-family residences.
Discourage the use of fences that obscure the view of the front of houses from the street.
Policy L-6.8
Policy L-6.9
Policy L-6.10 Encourage high quality signage that is attractive, energy-efficient, and appropriate for the location, and balances
visibility needs with aesthetic needs.
GOAL L-7 Conservation and preservation of Palo Alto’s historic buildings, sites and districts.
H ISTORIC R ESOURCES
Policy L-7.1 Encourage public and private upkeep and
preservation of resources that have historic merit,
including residences listed in the City’s Historic
Resource Inventory, the California Register of
Historical Resources, or the National Register of
Historic Places.
Program L7.1.1 Update and maintain the City’s
Historic Resource Inventory to
include historic resources that are
eligible for local, State, or federal listing. Historic resources may consist of a single building or
structure or a district.
Program L7.1.2 Reassess the Historic Preservation Ordinance to ensure its effectiveness in the maintenance
and preservation of historic resources, particularly in the University Avenue/Downtown area.
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Policy L-7.2 If a proposed project would substantially affect the
exterior of a potential historic resource that has not
been evaluated for inclusion into the City’s Historic
Resources Inventory, City staff shall consider
whether it is eligible for inclusion in State or federal
registers prior to the issuance of a demolition or
alterations permit. Minor exterior improvements
that do not affect the architectural integrity of
potentially historic buildings shall be exempt from
consideration. Examples of minor improvements
may include repair or replacement of features in
kind, or other changes that do not alter character-defining features of the building.
Policy L-7.3
Policy L-7.4
Policy L-7.5
Actively seek state and federal funding for the preservation of buildings of historical merit and consider
public/private partnerships for capital and program improvements.
Relocation may be considered as a preservation strategy when consistent with State and national standards
regarding the relocation of historic resources.
To reinforce the scale and character of University Avenue/Downtown, promote the preservation of significant
historic buildings.
Policy L-7.6
Policy L-7.7
Promote awards programs and other forms of public recognition for exemplary Historic Preservation projects.
Streamline, to the maximum extent feasible, any future processes for design review of historic structures to
eliminate unnecessary delay and uncertainty for the applicant and to encourage historic preservation.
R EHABILITATION AND R EUSE
Policy L-7.8 Promote adaptive reuse of old buildings.
Program L7.8.1 Promote and expand available incentives for the retention and rehabilitation of buildings with
historic merit in all zones and revise existing zoning and permit regulations to minimize
constraints to adaptive reuse.
Program L7.8.2 Create incentives to encourage salvage and reuse of discarded historic building materials.
Program L7.8.3 Seek additional innovative ways to apply current codes and ordinances to older buildings.
Use the State Historical Building Code for designated historic buildings.
Policy L-7.9 Allow compatible nonconforming uses for the life of historic buildings.
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Policy L-7.10
Policy L-7.11
Policy L-7.12
Ensure the preservation of significant historic
resources owned by the City of Palo Alto. Allow
such resources to be altered to meet
contemporary needs consistent with the Secretary
of the Interior Standards for Rehabilitation.
For proposed exterior alterations or additions to
designated Historic Landmarks, require design
review findings that the proposed changes are in
compliance with the Secretary of the Interior
Standards for Rehabilitation.
Maintain the historic integrity of building exteriors.
Consider parking exceptions for historic buildings to
encourage rehabilitation.
Program L7.12.1 Review parking exceptions for historic buildings in the Zoning Code to determine if there is
an effective balance between historic preservation and meeting parking needs.
Policy L-7.13
Policy L-7.14
Encourage and assist owners of historically significant buildings in finding ways to adapt and rehabilitate these
buildings, including participation in state and federal tax relief programs.
Continue to use a TDR Ordinance to allow the transfer of development rights from designated buildings of
historic significance in the Commercial Downtown (CD) zone to non-historic receiver sites in the CD zone.
Consider revising the TDR Ordinance so that transferred development rights may be used only for residential
development on the receiver sites.
A RCHAEOLOGICAL R ESOURCES
Policy L-7.15 Protect Palo Alto’s archaeological resources, including natural land formations, sacred sites, the historical
landscape, historic habitats and remains of settlements here before the founding of Palo Alto in the 19th
century.
Policy L-7.16 Continue to consult with tribes as required by California Government Code Section 65352.3. In doing so, use
appropriate procedures to accommodate tribal concerns when a tribe has a religious prohibition against
revealing precise information about the location or previous practice at a particular sacred site.
Policy L-7.17
Policy L-7.18
Assess the need for archaeological surveys and mitigation plans on a project-by-project basis, consistent with the
California Environmental Quality Act and the National Historic Preservation Act.
Require project proponents to meet State codes and regulations regarding the identification and protection of
archaeological and paleontological deposits, and unique geologic features.
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P A L O A L T O C O M P R E H E N S I V E P L A N
L A N D U S E A N D C O M M U N I T Y D E S I G N E L E M E N T
P ARKS AND G ATHERING P LACES
GOAL L-8 Attractive and safe parks, civic and cultural facilities provided in all neighborhoods and
maintained and used in ways that foster and enrich publiclife.
Policy L-8.1 Facilitate creation of new parkland to serve Palo
Alto's residential neighborhoods, as consistent with
the Parks, Trails, Open Space and Recreation Master
Plan.
Policy L-8.2
Policy L-8.3
Provide comfortable seating areas and plazas with
places for public art adjacent to library and
community center entrances.
Encourage small-scale local-serving retail services,
such as small cafes, delicatessens and coffee carts, in
civic centers: Mitchell Park, Rinconada Library and
Cubberly Community Center.
Policy L-8.4
Policy L-8.5
Create facilities for civic and intellectual life, such as
better urban public spaces for civic programs and
speakers, cultural, musical and artistic events.
Recognize public art and cultural facilities as a community benefit. Encourage the development of new and the
enhancement of existing public and private art and cultural facilities throughout Palo Alto. Ensure that such
projects are compatible with the character and identity of the surrounding neighborhood.
Policy L-8.6
Policy L-8.7
Seek potential new sites for art and cultural facilities, public spaces, open space and community gardens.
Encourage religious and private institutions to collaborate with the community and the surrounding
neighborhood.
P UBLIC S TREETS AND P UBLIC S PACES
GOAL L-9 Attractive, inviting public spaces and streets that enhance the image and character of the city.
STREETS AND P ARKING
Policy L-9.1 Recognize Sand Hill Road, University Avenue between Middlefield Road and San Francisquito Creek,
Embarcadero Road, Page Mill Road, Oregon Expressway, Interstate 280, Arastradero Road (west of Foothill
Expressway), Junipero Serra Boulevard/Foothill Expressway and Skyline Boulevard as scenic routes and preserve
their scenic qualities.
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P A L O A L T O C O M P R E H E N S I V E P L A N
L A N D U S E A N D C O M M U N I T Y D E S I G N E L E M E N T
Program L9.1.1 Evaluate existing zoning code
setback requirements to ensure
they are appropriate for scenic
routes.
Policy L-9.2 Encourage development that creatively integrates
parking into the project, including by locating it
behind buildings or underground wherever
possible, or by providing for shared use of parking
areas. Encourage other alternatives to surface
parking lots that minimize the amount of land devoted to parking while still maintaining safe streets, street trees,
a vibrant local economy and sufficient parking to meet demand.
Policy L-9.3 Treat residential streets as both public ways and neighborhood amenities. Provide and maintain continuous
sidewalks, healthy street trees, benches and other amenities that promote walking and “active” transportation.
Program L9.3.1 Review standards for streets and signage and update as needed to foster natural, tree-lined
streets with a minimum of signage.
PUBLIC S PACES
Policy L-9.4 Maintain and enhance existing public gathering
places and open spaces and integrate new public
spaces at a variety of scales.
Policy L-9.5
Policy L-9.6
Encourage use of data-driven, innovative design
methods and tactics and use data to understand to
evaluate how different community members use
public space.
Create, preserve and enhance parks and publicly accessible, shared outdoor gathering spaces within walking
and biking distance of residential neighborhoods.
Program L9.6.1 Analyze existing neighborhoods and determine where publicly-accessible shared, outdoor
gathering spaces are below the citywide standard. Create new public spaces, including public
squares, parks and informal gathering spaces in these neighborhoods.
G ATEWAYS
Policy L-9.7 Strengthen the identity of important community-wide gateways, including the entrances to the City at Highway
101, El Camino Real and Middlefield Road; the Caltrain stations; entries to commercial districts; Embarcadero
Road at El Camino Real and between Palo Alto and Stanford.
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P A L O A L T O C O M P R E H E N S I V E P L A N
L A N D U S E A N D C O M M U N I T Y D E S I G N E L E M E N T
Program L9.7.1 Develop a strategy to enhance gateway sites with special landscaping, art, public spaces
and/or public buildings. Emphasize the creek bridges and riparian settings at the entrances to
the City over Adobe Creek and San Francisquito Creek.
U RBAN F OREST
Policy L-9.8 Incorporate the goals of the Urban Forest Master
Plan, as periodically amended, into the
Comprehensive Plan by reference in order to assure
that new land uses recognize the many benefits of
trees in the urban context and foster a healthy and
robust tree canopy throughout the City.
Program L9.8.1 Establish incentives to encourage
native trees and low water use
plantings in new development
throughout the city.
Policy L-9.9 Involve the Urban Forester, or appropriate City staff, in development review.
U TILITIES AND I NFRASTRUCTURE
Policy L-9.10 Design public infrastructure, including paving, signs, utility structures, parking garages and parking lots to meet
high-quality urban design standards and embrace technological advances. Look for opportunities to use art and
artists in the design of public infrastructure. Remove or mitigate elements of existing infrastructure that are
unsightly or visually disruptive.
Program L9.10.1 Continue the citywide undergrounding of utility wires. Minimize the impacts of
undergrounding on street tree root systems and planting areas.
Program L9.10.2 Encourage the use of compact and well-designed utility elements, such as transformers,
switching devices, backflow preventers and telecommunications infrastructure. Place these
elements in locations that will minimize their visual intrusion.
Policy L-9.11 Provide utilities and service systems to serve all urbanized areas of Palo Alto and plan infrastructure
maintenance and improvements to adequately serve existing and planned development.
Program L9.11.1 Implement the findings of the City’s Infrastructure Blue Ribbon Committee and its emphasis
for rebuilding our civic spaces.
Program L9.11.2 Identify City-owned properties where combinations of wireless facilities can be co-located,
assuming appropriate lease agreements are in place.
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P A L O A L T O C O M P R E H E N S I V E P L A N
L A N D U S E A N D C O M M U N I T Y D E S I G N E L E M E N T
Policy L-9.12 Recognize the importance of regional infrastructure, such as the Regional Water Utility Infrastructure owned by
the San Francisco Public Utilities Commission (SFPUC).
Program L9.12.1 Coordinate with regional utility providers on activities that would impact their infrastructure
and right-of-way.
GOAL L-10 Maintain an economically viable local airport with minimal environmental impacts.
PALO A LTO A IRPORT
Policy L-10.1 Operate Palo Alto Airport (PAO) as a vital and efficient facility at its current level of operation without intruding
into open space areas. PAO should remain limited to a single runway and minor expansion shall only be
allowed in order to meet federal and State airport design and safety standards.
Program L10.1.1 Relocate the terminal building away from the Runway 31 clear zone and closer to the
hangars, allowing for construction of a replacement terminal.
Program L10.1.2 Update the Airport Layout Plan in accordance with Federal Aviation Administration
requirements, as needed, while ensuring conformance with the Baylands Master Plan to the
maximum extent feasible.
Program L10.1.3 Identify and pursue funding to address maintenance, safety and security improvements
needed at PAO.
Policy L-10.2
Policy L-10.3
Regulate land uses in the Airport Influence Area to ensure consistency with the Palo Alto Airport Comprehensive
Land Use Plan and the Baylands Master Plan.
Minimize the environmental impacts associated with PAO operations, including adverse effects on the character
of surrounding open space, noise levels and the quality of life in residential areas, as required by federal and
State requirements.
Program L10.3.1 Establish and implement a system for processing, tracking and reporting noise complaints
regarding local airport operations on an annual basis.
Program L10.3.2 Work with the airport to pursue opportunities to enhance the open space and habitat value
of the airport. These include:
h Maintaining native grasses;
h Reconstructing levees to protect the airport from sea level rise while enhancing public
access and habitat conservation; and
h Evaluating the introduction of burrowing owl habitat. This program is subject to federal
wildlife hazard requirements and guidelines for airports.
Policy L-10.4 Provide public access to the Airport for bicyclists and pedestrians.
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P A L O A L T O C O M P R E H E N S I V E P L A N
L A N D U S E A N D C O M M U N I T Y D E S I G N E L E M E N T
Program L10.4.1 Continue to provide a bicycle/pedestrian path adjacent to Embarcadero Road, consistent with
the Baylands Master Plan and open space character of the baylands subject to federal and
State airport regulations.
Policy L-10.5
Policy L-10.6
Address the potential impacts of future sea level rise through reconstruction of the Bayfront levee in a manner
that provides protection for the Airport and greater habitat along the San Francisco Bay frontage.
Encourage the use of alternatives to leaded fuel in aircraft operating in and out of Palo Alto Airport.
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Ordinance No. _____
Ordinance of the Council of the City of Palo Alto Adopting/Amending………
The Council of the City of Palo Alto ORDAINS as follows:
SECTION 1. Findings and Declara ons
SECTION 2. Chapter 18.14 (Housing Incen ves) of Title 18 (Zoning) of the Palo Alto Municipal Code is
added to read as follows:
CHAPTER 18.14: HOUSING INCENTIVES (NEW CHAPTER; TRACKED CHANGES NOT SHOWN)
18.14.010 Purpose
This chapter implements the regional housing needs strategy (RHNA) of the City’s Comprehensive Plan
Housing Element to rezone opportunity sites; facilitates housing produc on; affirma vely furthers fair
housing; and provides incen ves for housing development, especially below-market rate housing.
18.14.020 Housing Element Opportunity Sites
This subsec on implements the rezonings required to meet the RHNA in the 2023-2031 Housing
Element, pursuant to Appendix D. Regula ons iden fied in Table 1 and Table 2 modify and replace
development standards provided in base zoning district and applicable combining district regula ons.
a) Applicability: This subsec on applies to Housing Element opportunity sites listed in Appendix D.
b) Permi ed Uses: Refer to the base zoning district and applicable combining districts for allowed
uses, except:
Exclusively residen al uses are permi ed on all Housing Element opportunity sites.
Combining district use regula ons shall not apply to exclusively residen al projects on
Housing Element opportunity sites designated to accommodate lower income households.
Sites zoned to allow mixed use development and are iden fied on Appendix D of the
Housing Element as suitable for lower income households, must be developed with a
minimum of 50% residen al floor area.
c) Development Standards: Refer to base zoning district and applicable combining districts for
development standards except:
Residen al uses on R-1 zoned sites (faith-based ins tu ons) shall be subject to the
development standards for the RM-30 zoning district, pursuant to Chapter 18.13.040, except
that Maximum FAR shall be 1.25 and minimum density shall be 20 units per acre.
RM-20, RM-30, RM-40, CN, CS, CC, CC(2), CD-C, and CD-N zoned sites as modified by Table 1
GM, ROLM, and RP zoned sites as modified by Table 2
PF zoned sites shall meet the following development standards:
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o Downtown sites: CD-C standards, pursuant to Table 1 below
o California Avenue sites: CC(2) standards, pursuant to Table 1 below
Stanford University-owned sites, as an alterna ve to State Density Bonus Law, shall meet
base district regula ons as modified by Table 3 [PLACEHOLDER]
Combining district design and development standards shall not apply to exclusively
residen al projects on Housing Element opportunity sites designated to accommodate lower
income households.
Table 1
Housing Element Opportunity Site Development Standards (Residen al and Commercial Mixed Use
Districts)
Base Zoning
District
Maximum FAR (1)
Minimum
Landscape
Coverage
Residen al Density (du/ac)(4)
Other
Development
Standards Residen al Total Minimum Maximum
CC(2) 1.5 2.0 (3) 20
See base district
regula ons:
18.16.060
See base district
regula ons:
18.16.060
CC 1.25 1.25 (3) 20
CS (El Camino
Real) 1.25 1.25 (3) 20
CS (Other) 1.25 1.25 (3) 20 See HE Appendix D
CN (El Camino
Real) 1.25 1.25 30% (3) 20
See base district
regula ons:
18.16.060
CN (Other) 1.25 1.25 30% (3) 20 See HE Appendix D
CD-C 2.0 2.0 (2) (3) 20 See base district
regula ons:
18.18.060
See base district
regula ons:
18.18.060 CD-N 1.5 1.5
(3)
20
RM-40 1.5 1.5 (3) 31
See HE Appendix D
See base district
regula ons:
18.13.040
RM-30 1.25 1.25 (3) 20
RM-20 1.25 1.25
See
18.13.040 20
(1) Nothing in this table increases the non-residen al floor area permi ed in any district.
(2) FAR may be increased with transfer of development rights; see Chapter 18.18 for details.
(3) Landscape coverage may be provided above the ground-floor. If standard is not specified, refer to base
district regula ons.
(4) Where no maximum density is provided in terms of du/ac, maximum density shall be determined by
es ma ng the realis c development capacity of the site based on the objec ve development standards
applicable to the project. Where noted, refer to Housing Element Appendix D: Sites Inventory for specified
densi es.
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Table 2
Housing Element Opportunity Site Development Standards (Office Commercial Mixed Use Districts)
Base
Zoning
District
Maximum FAR Minimum
Landscape
Coverage
Maximum
Lot
Coverage
Residen al Density
(du/ac)(2) Maximum
Height
Minimum
Parking
Ra os
Other
Development
Standards Residen al Total Minimum Maximum
GM
(Figure 1) 2.5 2.5 20% (1) 70% 20
None; 90
du/ac
an cipated 60
1 space per
studio/1-bed;
1.5 spaces per
2-bed+
See base
district
regula ons:
18.20.040
GM
(Other) 1.5 1.5 30% (1) 70% 20
See HE
Appendix D
See
18.20.040 No change
ROLM
(Figure 1) 2.5 2.5 20% (1) 70% 20
None; 90
du/ac
an cipated 60
1 space per
studio/1-bed;
1.5 spaces per
2-bed+
ROLM
(Other) 1.5 1.5 (1) 70% 20
None; 50
du/ac
an cipated 45 No change
RP
1.25 1.25 (1)
See
18.20.040 20
None; 40
du/ac
an cipated
See
18.20.040 No change
(1) Landscape coverage may be provided above the ground-floor. If standard is not specified, refer to base
district regula ons.
(2) These sites do not provide a maximum density in terms of du/ac; however, an cipated densi es have
been determined by es ma ng the realis c development capacity of the site based on the objec ve
development standards applicable to the project. Where noted, refer to Housing Element Appendix D:
Sites Inventory for specified densi es.
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Figure 1: GM/ROLM Housing Element Focus Area
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Table 3
Housing Element Opportunity Site Development Standards (Stanford-Owned Sites) (PLACEHOLDER;
DETAILED STANDARDS TO COME)
Loca on RM-40: Pasteur Dr. &
1100 Welch Rd.
CS: 3128 El Camino
Real
RP: 3300 El Camino
Real
Minimum Front Setback
Maximum FAR
Maximum Site/Landscape
Coverage
Maximum Lot Coverage
Maximum Density (du/ac)
Maximum Height
Daylight Plane or Step
Back
Open Space
Common
Private
Parking Regula ons
Minimum
Maximum
Other Development
Standards
Design Criteria/Standards
18.14.030 Housing Incen ve Program (Reserved)
18.14.040 Affordable Housing Incen ve Program (Reserved)
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SECTION 3. Sec on 18.12.030 (Land Uses) of Chapter 18.12 (R-1 Single-Family Residen al District) of
Title 18 (Zoning) of the Palo Alto Municipal Code is amended to read as follows (CHANGES SHOWN IN
UNDERLINE STRIKEOUT):
18.12.030 Land Uses
The permi ed and condi onally permi ed uses for the single family residen al districts are shown in
Table 1:
Table 1
PERMITTED AND CONDITIONAL R-1 RESIDENTIAL USES
R-1 and all R-1
Subdistricts
Subject to Regula ons in:
[. . .]
RESIDENTIAL USES
Single-Family P
Two-Family use, under one ownership P 18.42.180
Mobile Homes P 18.42.180
Mul ple-Family P(2) 18.14.020
Residen al Care Homes P
[. . .]
(1) An Accessory Dwelling Unit or a Junior Accessory Dwelling Unit associated with a single-family
residence on a lot is permi ed, subject to the provisions of Chapter 18.09.
(2) Housing Element opportunity sites (faith-based ins tu ons) only.
SECTION 4. Sec on 18.12.040 (Development Standards) of Chapter 18.12 (R-1 Single-Family Residen al
District) of Title 18 (Zoning) of the Palo Alto Municipal Code is amended to read as follows:
18.12.040 Development Standards
(a) Site Specifica ons, Building Size, Height and Bulk, and Residen al Density
The development standards for the R-1 district and the R-1 subdistricts are shown in Table 2, except:
(1) To the extent such standards may be modified by Sec on 18.42.180 for two-family uses pursuant
to California Government Code Sec on 65852.21 (SB 9, 2021;
(2) On Housing Element opportunity sites (faith-based ins tu ons): development standards for
Mul ple-Family uses are iden fied in Sec on 18.14.020, which states that sites shall meet the
development standards for the RM-30 zoning district, except that Maximum FAR shall be 1.25.
[. . .]
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SECTION 5. Chapter 18.13: MULTIPLE FAMILY RESIDENTIAL (RM-20, RM-30 AND RM-40) DISTRICTS
[. . .]
18.13.040 Development Standards
(a) Site Specifica ons, Building Size and Bulk, and Residen al Density
The site development regula ons in Table 2 shall apply in the mul ple-family residence districts,
provided that more restric ve regula ons may be recommended by the Architectural Review Board and
approved by the Director of Planning and Development Services, pursuant to the regula ons set forth in
Chapter 18.76, and the objec ve design standards set forth in Chapter 18.24. Except that sites
designated as Housing Element Opportunity Sites shall meet the development standards specified in
Chapter 18.14.020.
Table 2
Mul ple Family Residen al Development Table
RM-20 RM-30 RM-40 Subject to
regula ons in:
[. . .]
Maximum Site Coverage:
Base 35% 40% 45%
Addi onal area permi ed to be covered by
covered pa os or overhangs otherwise in
compliance with all applicable laws
5% 5% 5%
Maximum Floor Area Ra o (FAR)(4) 0.5:1 0.6:1 1.0:1
Residen al Density (units)
Maximum number of units per acre(3) 20 30 40 18.13.040(g)
18.14.020
Minimum number of units per acre(8) 11 16 21 18.14.020
Minimum Site Open Space(5) (percent) 35 30 20 18.13.040(e)
18.14.020
Minimum Usable Open Space (sf per unit)(5) 150 150 150
Minimum common open space (sf per unit) 75 75 75 18.13.040(e)
Minimum private open space (sf per unit) 50 50 50
Performance Criteria See provisions of Chapter 18.23 Ch. 18.23
Landscape Requirements 18.40.130
Parking(6) See provisions of Chapter 18.52 Ch. 18.52
[. . .]
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SECTION 6. Chapter 18.20: OFFICE, RESEARCH, AND MANUFACTURING (MOR, ROLM, RP, AND GM)
[. . .]
18.20.030 Land Uses
(a) Permi ed and Condi onally Permi ed Land Uses
Table 1 lists the land uses permi ed or condi onally permi ed in the industrial and manufacturing
districts.
Table 1
Industrial/Manufacturing District Land Uses
[P = Permi ed Use CUP = Condi onal Use Permit Required]
MOR ROLM
ROLM(E)
RP
RP(5)
GM Subject to Regula ons
in Chapter:
…
RESIDENTIAL USES
Single-Family Not permi ed 18.20.040(b)
Two-Family Not permi ed
Mul ple-Family (Housing
Element Opportunity Site) P P P
18.14.020
Mul ple-Family (Other
Sites) CUP CUP CUP CUP(1)
18.14.020
Residen al Care Homes P CUP CUP CUP 18.23.100(B)
…
(1) Adjacent to Bayshore Freeway and generally bounded by East Charleston Road and Loma
Verde Avenue (see Figure 1), subject to CUP
[. . .]
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Figure 1: GM/ROLM Housing Element Focus Area
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18.20.040 Site Development Standards
[. . .]
(b) Development Standards for Exclusively Residen al Uses
Residen al uses shall be permi ed in the MOR, RP, RP(5), ROLM, ROLM(E), and GM zoning districts,
subject to the following criteria.
(1) It is the intent of these provisions that a compa ble transi on be provided from lower density
residen al zones to higher density residen al or non-residen al zones. The Village Residen al
development type should be evaluated for use in transi on areas and will provide the greatest flexibility
to provide a mix of residence types compa ble with adjacent neighborhoods.
(2) No new single-family or two-family residen al development is permi ed in any of the office,
research and manufacturing districts, and no new residen al development is permi ed within 300 feet
of an exis ng Hazardous Materials Tier 2 use. Exis ng single-family and two-family uses and exis ng
residen al development within 300 feet of an exis ng Hazardous Materials Tier 2 use shall be permi ed
to remain, consistent with the provisions of Chapter 18.70 (Nonconforming Uses and Noncomplying
Facili es).
(3) MOR District. All mul -family development in the MOR zoning district shall be permi ed subject to
approval of a condi onal use permit and compliance with the development standards prescribed for the
RM-30 zoning district.
(4) RP and RP(5) Districts. All mul -family development in the RP, and RP(5) zoning districts that is
located within 150 feet of an R-E, R-1, R-2, RMD, or similar density residen al PC zone shall be permi ed
subject to the provisions above in 18.20.040(b)(2), approval of a condi onal use permit, and compliance
with the development standards prescribed for the RM-20 zoning district, including Village Residen al
development types. Mul -family development in the MOR, RP, and RP(5) zoning districts that is located
greater than 150 feet from an R-E, R-1, R-2, RMD, or low density residen al PC shall be permi ed subject
to the provisions above in 18.20.040(b)(2), approval of a condi onal use permit, and compliance with
the development standards prescribed for the RM-30 zoning district, except for sites designated as
Housing Element Opportunity Sites, which are regulated by Chapter 18.14.020.
(5) ROLM (E) District. All mul -family development in the ROLM(E) zoning district shall be permi ed
subject to the provisions above in 18.20.040(b)(2), approval of a condi onal use permit, and compliance
with the development standards prescribed for the RM-20 zoning district.
(6) ROLM District. All mul -family development in the ROLM zoning district shall be permi ed subject
to the provisions above in 18.20.040(b)(2), approval of a condi onal use permit, and compliance with
the development standards prescribed for the RM-30 zoning district, except for sites designated as
Housing Element Opportunity Sites, which are regulated by Chapter 18.14.020.
(7) GM District. All residen al development is prohibited in the GM zoning district, except for sites
designated as Housing Element Opportunity Sites, which are regulated by Chapter 18.14.020.
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(8) Combining Districts. Combining district use regula ons and design and development standards shall
not apply to exclusively residen al projects on Housing Element opportunity sites designated to
accommodate lower income households.
(c) Development Standards for Mixed (Residen al and Nonresiden al) Uses in the MOR, ROLM,
ROLM(E), RP, and RP(5) zoning Districts
Mixed (residen al and nonresiden al) uses shall be permi ed in the MOR, ROLM, ROLM(E), RP, and
RP(5) zoning districts, subject to the following criteria:
(1) It is the intent of these provisions that a compa ble transi on be provided from lower density
residen al zones to higher density residen al, non-residen al, or mixed use zones. The Village
Residen al development type should be evaluated for use in transi on areas and will provide the
greatest flexibility to provide a mix of residence types compa ble with adjacent neighborhoods.
(2) New sensi ve receptor land uses shall not be permi ed within 300 feet of a Hazardous Materials
Tier 2 or Tier 3 use. Exis ng sensi ve receptors shall be permi ed to remain, consistent with the
provisions of Chapter 18.70 (Nonconforming Uses and Noncomplying Facili es).
(3) ROLM(E) District. Mixed (residen al and nonresiden al) development in the ROLM(E) zoning
district shall be permi ed, subject to the provisions above in 18.20.040(c)(2), approval of a condi onal
use permit, determina on that the nonresiden al use is allowable in the district and that the residen al
component of the development complies with the development standards prescribed for the RM-20
zoning district. The maximum floor area ra o (FAR) for mixed use development is 0.3 to 1.
(4) ROLM District. Mixed (residen al and nonresiden al) development in the ROLM zoning district
shall be permi ed, subject to the provisions above in 18.20.040(c)(2), approval of a condi onal use
permit, determina on that the nonresiden al use is allowable in the district and that the residen al
component of the development complies with the development standards prescribed for the RM-30
zoning district. The maximum floor area ra o (FAR) for mixed use development is 0.4 to 1. Except that
sites designated as Housing Element Opportunity Sites shall meet the development standards specified
in Chapter 18.14.020.
(5) GM District. Mixed use (residen al and nonresiden al) development is prohibited in the GM
zoning district, except for sites designated as Housing Element Opportunity Sites, which are regulated by
Chapter 18.14.020.
In compu ng residen al densi es for mixed (residen al and nonresiden al) uses, the density
calcula on for the residen al use shall be based on the en re site, including the nonresiden al por on
of the site.
[. . .]
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SECTION 7. Chapter 18.16: NEIGHBORHOOD, COMMUNITY, AND SERVICE COMMERCIAL (CN, CC AND
CS) DISTRICTS
[. . .]
18.16.060 Development Standards
[. . .]
(b) Mixed Use and Residen al
Table 4 specifies the development standards for new residen al mixed use developments and residen al
developments. These developments shall be designed and constructed in compliance with the following
requirements and the objec ve design standards in Chapter 18.24. Except that sites designated as
Housing Element Opportunity Sites shall meet the development standards as modified in Chapter
18.14.020. Non-Housing Development Projects and Housing Development Projects that elect to deviate
from one or more objec ve standards in Chapter 18.24 shall meet the context-based design criteria
outlined in Sec on 18.16.090, provided that more restric ve regula ons may be recommended by the
architectural review board and approved by the director of planning and development services, pursuant
to Sec on 18.76.020.
Table 4
Mixed Use and Residen al Development Standards
CN CC CC(2) CS Subject to
regula ons in:
[. . .]
Maximum Site Coverage 50% 50% 100% 50%
Minimum Landscape/Open Space
Coverage 35% 30% 20% 30% 18.14.020
Usable Open Space (Private and/or
Common)
150 sq per unit (2)
18.16.090
Maximum Height ()
Standard 35' (4) 50' 37' 50'
Por ons of a site within 150 . of an
abu ng residen al district (other than
an RM-40 or PC zone) (5)
35' 35' 35' 35' 18.08.030
Daylight Plane for lot lines abu ng
one or more residen al zoning
districts
Daylight plane height and slope shall be iden cal to
those of the most restric ve residen al zoning district
abu ng the lot line
Residen al Density (net) (3) 15 or 20 (9) See sub-
sec on
(e)
below
No maximum
30 18.16.060(i)
18.14.020
Sites on El Camino Real No maximum No maximum
Maximum Residen al Floor Area
Ra o (FAR) 0.5:1 (4) 0.6:1 0.6:1 18.16.065
18.14.020
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CN CC CC(2) CS Subject to
regula ons in:
[. . .]
Maximum Nonresiden al Floor Area
Ra o (FAR) 0.4:1 2.0:1 0.4:1
Total Mixed Use Floor Area Ra o
(FAR) 0.9:1 (4) 2.0:1 1.0:1 18.16.065
18.14.020
Minimum Mixed Use Ground Floor
Commercial FAR (6) 0.15:1(10) 0.15:1(10)
0.25:1 (7) (10) 0.15:1 (10)
Parking See Chapters 18.52 and 18.54 (Parking) 18.52, 18.54
[. . .]
(c) Exclusively Residen al Uses
Exclusively residen al uses are generally prohibited in the CN, CS, CC(2) and CC zone districts, except
on housing inventory sites iden fied in the Housing Element, subject to the standards in
Sec on 18.16.060(b), and on CS and CN sites on El Camino Real and CC(2) sites, subject to the following.
(1) On CS and CN sites on El Camino Real and on CC(2) sites, where the retail shopping (R) combining
district or the retail preserva on provisions of Sec on 18.40.180 do not apply, exclusively residen al
uses are allowed subject to the standards in Sec on 18.16.060(b) and the following addi onal
requirements:
(A) Residen al units shall not be permi ed on the ground-floor of development fron ng on El
Camino Real unless set back a minimum of 15 feet from the property line or the 12-foot effec ve
sidewalk setback along the El Camino Real frontage, whichever is greater. Common areas, such as
lobbies, stoops, community rooms, and work-out spaces with windows and architectural detail are
permi ed on the ground-floor El Camino Real frontage.
(B) Parking shall be located behind buildings or below grade, or, if infeasible, screened by
landscaping, low walls, or garage structures with architectural detail.
(C) Combining district use regula ons and design and development standards shall not apply to
exclusively residen al projects on Housing Element opportunity sites designated to accommodate lower
income households.
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SECTION 8. Chapter 18.18: DOWNTOWN COMMERCIAL (CD) DISTRICT
18.18.060 Development Standards
[. . .]
(b) Mixed Use and Residen al
Table 3 specifies the development standards for new residen al mixed use developments and
residen al developments. Housing Development Projects shall be designed and constructed in
compliance with the following requirements and the objec ve design standards in Chapter 18.24. Non-
Housing Development Projects and Housing Development Projects that elect to deviate from one or
more objec ve standards in Chapter 18.24 shall meet context-based design criteria outlines in
Sec on 18.18.110, provided that more restric ve regula ons may be recommended by the architectural
review board and approved by the director of planning and development services, pursuant to
Sec on 18.76.020:
TABLE 3
MIXED USE AND RESIDENTIAL DEVELOPMENT STANDARDS
CD-C CD-S CD-N Subject to regula ons
in Sec on:
[. . .]
Maximum Site Coverage No requirement 50% 50%
Minimum Landscape Open Space
Coverage 20% 30% 35% 18.14.020
Usable Open Space (Private and/or
Common)
150 sq per unit (1) 18.18.110
Maximum Height ()
Standard 50' 50' 35' 18.08.030
Por ons of a site within 150 . of an
abu ng residen al district (other than
an RM-40 or PC zone)(4)
40' 40' 35' 18.08.030
Daylight Plane for lot lines abu ng
one or more residen al zoning
districts or a residen al PC district
Daylight plane height and slope iden cal to those
of the most restric ve residen al zone abu ng
the lot line
Residen al Density (net)(2) No maximum 30 30 18.14.020
Maximum Weighted Average
Residen al Unit Size(5)
1,500 sq per
unit No maximum No maximum
Maximum Residen al Floor Area
Ra o (FAR) 1.0:1(3) 0.6:1(3) 0.5:1(3) 18.14.020,
18.18.065, 18.18.070
Maximum Nonresiden al Floor Area
Ra o (FAR) 1.0:1(3) 0.4:1 0.4:1
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Total Floor Area Ra o (FAR)(3) 2.0:1(3) 1.0:1(3) 0.9:1(3) 18.14.020,
18.18.065, 18.18.070
Parking Requirement See Chapters 18.52 and 18.54 Chs. 18.52, 18.54
[. . .]
(c) Exclusively Residen al Uses
(1) Exclusively residen al uses are allowed in the CD-C subdistrict, except in the ground floor (GF)
combining district. However, GF combining district use regula ons and design and development
standards shall not apply to exclusively residen al projects on Housing Element opportunity sites
designated to accommodate lower income households.
(2) Exclusively residen al uses are generally prohibited in the CD-N and CD-S subdistricts. Such uses
are allowed, however, where a site is designated as a housing inventory site in the Housing Element of
the Comprehensive Plan. Such sites shall be developed pursuant to the regula ons for the mul -family
zone designa on (RM-20, RM-30, or RM-40) iden fied for the site in the Housing Element.
SECTION 9. Chapter 18.28 SPECIAL PURPOSE (PF, OS and AC) DISTRICTS
[. . .]
18.28.040 Land Uses
Table 1 shows the permi ed (P) and condi onally permi ed (CUP) land uses for the Special Purpose
Districts.
Table 1
Land Uses
PF OS AC Subject to Regula ons
in Chapter:
[. . .]
Single-family dwellings P
Manufactured housing (including mobile homes on
permanent founda ons)
P 18.40.
Mul ple-Family (Housing Element Opportunity Site) P 18.14.020
Guest ranches CUP
Residen al care facili es, when u lizing exis ng
structures on the site
CUP(1)
Residen al Care Homes P
Residen al use, and accessory buildings and uses
customarily incidental to permi ed dwellings;
provided, however, that such permi ed dwellings
shall be for the exclusive use of the owner or
owners, or lessee or lessor of land upon which the
permi ed agricultural use is conducted, and the
P
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residence of other members of the same family and
bona fide employees of the aforemen oned
[. . .]
[. . .]
18.28.050 Site Development Standards
(a) Development Standards. On Housing Element opportunity sites (City-owned parking lots):
development standards are iden fied in Sec on 18.14.020
Table 2
Special Purpose District Site Development Standards
[. . .]
(b) Open Space Impervious Coverage and Floor Area
(1) Residen al Use
The impervious coverage and floor area ra os shall be determined based on a sliding scale
calcula on. Table 3 provides the range of allowable percentages for the calcula on. Allowable
development for other site sizes between 1 and 10 acres shall be calculated on a prorated basis between
the acreages shown in Table 3. Except that on Housing Element opportunity sites (City-owned parking
lots), development standards are iden fied in Sec on 18.14.020.
Table 3
Open Space Residen al Impervious Coverage and Floor Area Ra o Scale
[. . .]
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INTRODUCED:
PASSED:
AYES:
NOES:
ABSENT:
ABSTENTIONS:
ATTEST:
____________________________ ____________________________
City Clerk Mayor
APPROVED AS TO FORM: APPROVED:
____________________________ ____________________________
Assistant City A orney City Manager
____________________________
Director of
____________________________
Director of
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5-4
5.6 GOAL 6.0 – FAIR HOUSING
Promote equal opportunity in all City housing types (ownership and rental, market rate and affordable)
for all residents to have safe and accessible housing.
POLIC Y 6.1
Support programs and agencies that seek to eliminate housing discrimination. (Existing Policy H4.1)
POLIC Y 6.2
Conduct fair housing outreach and education for residents, property owners, and housing providers to
ensure each understands their rights and responsibilities.
POLIC Y 6.3
Identify mechanisms to increase production and access to housing.
POLIC Y 6 .4
Enforce notification and relocation assistance requirements for low income households displaced due to
demolition, condominium conversion, and persons displaced due to code enforcement activities of
illegally converted or substandard residential dwellings.
POLIC Y 6.5
Support and provide ways to empower community members to participate in community development.
5.7 PROGRAMS & IMPLEMENTING OBJECTIVES
PROGRAM 1 : MAINTAIN SITES .
Programs that identify adequate sites, with appropriate zoning and development standards to
accommodate Palo Alto’s RHNA allocation for each income level:
P ROGRAM 1 .1 : A DEQUATE S ITES P ROGRAM
Through zoning and comprehensive plan designations, the City maintains a residential site inventory that
is adequate to accommodate the City’s share of regional housing needs. The City’s Regional Housing
Needs Assessment (RHNA) is 6,086 units (1,556 units for very-low income, 896 units for low income, 1,013
units for moderate income, and 2,621 units for above moderate income). With anticipated pipeline
projects (778 units) and projected accessory dwelling unit production (512 units); a total of 1,290 units
can be credited toward the City’s RHNA. Based on the City’s Site Inventory capacity analysis (see Appendix
D), the remaining 4,796 units (1,869 lower-income, 773 moderate-income, 2,154 above moderate-
income) can be achieved through various strategies to accommodate future housing needs. Specifically,
the City is able to accommodate 1,575 units of the remaining RHNA obligation with sites with appropriate
zoning and development standards, in the following income categories (298 very low, 304 low, 335
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moderate, and 638 above moderate income). Therefore, the City has a remaining shortfall of sites for
4,511 units (1,258 very low, 592 low, 678 moderate, and 1,983 above moderate income) that must be
accommodated with rezoning and upzoning.
Responsible
Agency:
Planning and Development Services
Funding
Sources(s):
General Fund
Implementing
Objective:
A. Amend the Comprehensive Plan and zoning districts as needed for properties
identified to meet the City’s RHNA obligations. The amendments include changes to
allow increased residential densities shown in Appendix D in developments and
relevant development standards to accommodate increased density, and
modifications to allowable uses to permit multi-family residential uses where it is not
currently allowed. Examples of possible changes include adjustments to building
height, lot coverage, floor area ratios, ground floor landscaping requirement, and
parking, as discussed in Chapter 4, Analysis of Land Use Controls.
The rezone/upzoning shall include the following provisions of Government Code
Section 65583.2(h) and (i) for sites accommodating lower incomes: (1) By-right
development of multi-family developments in which 20 percent or more of units are
affordable to lower income households and no subdivision is needed; (2)
Accommodation of at least 16 units per site; (3) Minimum density of 20 units per
acre; (4) Because 50 percent of the lower-income need cannot be accommodated on
sites designated for residential use only, a portion shall be accomodated on sites
zoned for mixed uses that allow 100 percent residential use, and require that
residential use occupy at least 50 percent of the total floor area of a mixed-use
project.
The rezoning includes the following requirements for these Stanford-owned
properties:
i. For the housing opportunity site located at the corner of Pasteur Drive and Sand
Hill Road and the adjoining property at 1100 Welch Road, as an alternative to the
State Density Bonus law, amend zoning regulations to allow approximately net
new 425 units up to 85 feet in height; redevelopment of the Welch Road property
shall comply with the replacement housing provisions of the Housing Crisis Act,
which will substantially protect tenants from displacement.
ii. For the housing opportunity site located at 3128 El Camino Real (McDonald’s),
as an alternative to the State Density Bonus law, amend zon ing regulations to
allow at least 144 housing units with a maximum height of 50 feet nearest El
Camino Real and transitioning taller away from the street to minimize a wall
effect; allow a minimum of 315 housing units if combined with an adjacent
property.
iii. For the housing opportunity site located at 3300 El Camino Real, as an alternative
to the State Density Bonus law, allow up to 200 housing units, up to a 1.4:1 floor
area ratio (FAR) with a 20% inclusionary housing requirement consistent with the
City’s Planned Home Zoning process; commercial office approved or permitted
on this property is in addition to the floor area allowed for the future housing
project.
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Time Frame: Complete by January 31, 2024
Quantified Objective: The City will amend the Comprehensive Plan or zoning
designation of 291 properties located in commercial, industrial or residential zoning
districts that combined will generate a realistic yield for 5,537 housing units.
B. Rezone ROLM and GM zoned properties to allow multi-family residential housing
with a density of 90 dwelling units per acre for those properties nearest Bayshore
Freeway and generally bounded by East Charleston Road and Loma Verde Avenue.
This action will require additional changes to the related development standard to
accommodate higher density development. Examples of specific changes to
development standards are discussed in Chapter 4, Analysis of Land Use Controls.
Time Frame: Complete by January 31, 2024
Quantified Objective: The City will rezone approximately 146 sites in the designated
area, including the already identified housing inventory sites, to allow for development
at 90 dwelling units per acre.
C. Maintain an updated inventory of housing sites and actively promote sites available
for lower- and moderate-income housing development to potential developers,
private and non-profit organizations, and other interested persons. Post information
on the City’s website and update as necessary to maintain accurate information.
D. Maintain an updated list of residential housing projects that have been submitted,
approved, and denied throughout the housing cycle.
Time Frame: Post information on the City’s website by January 2024 and update
annually, or more often if needed.
Quantified Objective: Support the development of 1,556 units for very-low income, 896
units for low income, 1,013 units for moderate income, and 2,621 above-moderate
households during the planning period.
E. Provide technical assistance and information on parcels available for lower-income
developments to private or non-profit housing developers. Technical assistance
includes land development counseling by staff planners.
Time Frame: Develop technical assistance program by June 2024 and set/publish regular
hours for assistance on the City’s website.
Quantified Objective: Support the development of 1,556 units for very-low income, 896
units for low income households during the planning period.
Primary
Associated
Goals and
Policies:
Goals: 2, 3, 4
Policies: 2.2, 3.1, 3.2, 3.3, 4.2, 4.4
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A NALYSIS OF L AND U SE C ONTROLS
This section analyzes the impact of all relevant land use controls on whether, independently and
cumulatively, they present a constraint on the development of a variety of housing types. In summary,
this analysis reveals standards that represent a constraint to achieving housing production at densities
specified in the existing regulations and/or rezonings identified to meet the RHNA. First, the ground-level
landscaping requirement, generally 20 percent minimum, acts as a lot coverage limitation in the
commercial mixed use districts and represents a constraint to housing production at densities identified
in the Sites Inventory. The landscaping standard is proposed to be modified as part of the Program 1.1
zoning changes in order to achieve the stated density. Second, proposed density changes in the ROLM to
meet the RHNA, from 30 du/ac to 65 du/ac, will mean that other existing standards, such as height, FAR,
landscaping/lot coverage, or parking, will be constraints to achieving the density threshold. These
standards are also proposed to be modified as part of Program 1.1 to facilitate housing production at
stated densities.
To evaluate constraints, the City has prepared physical site test models of all development standards
specified in the Zoning Ordinance and summarized in the tables above , including setbacks, coverage,
density, FAR, open space, building height, and parking.
These models illustrate that multi-family development is physically feasible in all zones that allow housing,
including on the smaller sites in the Sites Inventory. Townhomes are feasible in all scenarios. Stacked flats
are generally feasible, but larger sites (above 10,000 sq. ft.) and/or corner lots are better for allowing
parking and circulation access. Smaller sites and interior lots are generally more constrained. However, as
detailed further below, in some instances, development standards need to be modified to achieve the
RHNA densities projected for some properties in the Sites Inventory.
Notably, residential density and parking standards do not correlate. Since the City requires 1 space/unit
for studios and 1-bedrooms, but 2 spaces/unit for 2+ bedrooms, in a hypothetical project, the same
amount of parking can serve either more studios/1-bedrooms (higher densities) or fewer 2+ bedroom
units (lower densities). These parking requirements apply to all multifamily projects regardless of zone.
Multifamily projects are being approved and built in Palo Alto in townhome and stacked flat
configurations, which suggests that projects are financially feasible for at least these projects. Some of
these projects take advantage of the Housing Incentive Program or State Density Bonus Law for increased
density, which generally improves financial feasibility for low and moderate-density buildings using wood
construction.
Housing development projects that meet objective development and design standards have a high level
of certainty for approval, potentially within 60 days of completeness for projects undergoing the City’s
Streamlined Review Process (subject to one study session with the ARB) or other State streamlining bills
(e.g., SB35 or AB2162) and exempt from CEQA. Projects that seek exceptions and utilize the subjective
Context-Based Design Criteria and Architectural Review Process are subject to subjective findings and up
to three public hearings with the ARB.
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Figure 4-2 CD(C) Zone Model
This 5,125 square foot CD(C) site accommodates four dwelling units in a townhome typology. This district
does not have setback or residential density standards, but does have a 50-foot height limit (which
reduces to 40 feet at the front of the site which is within 150 feet of a lower density residential district ).
At 1.23 FAR, this model exceeds the base FAR of 1.0, but is still below the Housing Incentive Program limit
of 3.0 FAR. FAR is the density limit for the district since there is no residential density standard expressed
in du/ac. The model also achieves the ground-level 20 percent landscape and 150 square feet/unit open
space requirements, average unit size maximum of 1,500 square feet, and provides 2 parking spaces per
unit in a tandem configuration. The resulting 3-story townhome attached townhome typology is a wood
construction type that is cost effective and commonly found in the area.
Existing zoning and proposed Housing Element programs provide a path to achieve more units and change
housing and construction types to stacked flats. . In the absence of a maximum density expressed in
dwelling units per acre, various development standards would need to be modified to increase density on
the site. For example, based the City’s analysis, the percent ground-level landscaping standard precludes
the project from achieving the allowable density and therefore represents a constraint on housing
production at the 50 du/ac threshold identified in the Sites Inventory for sites within 1/4 mile of major
transit. As part of Program 1.1, standards will be modified to allow the landscaping standard to be met
above ground-level (e.g., on a courtyard or the rooftop). This change could allow podium construction,
accommodate more units and parking, still within the existing height limit. Further, 100 percent below-
market rate projects could benefit from other development standards through the existing HIP to achieve
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substantially more units per acre. AB2097 also exempts this site from parking requirements altogether,
which would also increase unit yield beyond what is illustrated here.
Figure 4-3 CN Zone Model
This 15,800 square foot CN site accommodates 12 apartments and ground-floor retail in a mixed-use
typology. Key standards modeled include setbacks, 20 percent ground-floor landscape coverage, 35-foot
maximum building height, and the land use requirement to provide ground-floor retail. There is no
maximum residential density expressed in du/ac for sites on El Camino Real in this district, but FAR of 1.5
and lot coverage of 100 percent is permitted with the Housing Incentive Program. The model provides the
required 21 parking spaces in a below-grade garage. Although subterranean parking is a high cost option,
it is somewhat common in Palo Alto.
The ground-level landscaping requirement represents a constraint to achieving the 40 du/ac density
threshold identified in the Sites Inventory for this site which is located within a ½ mile of a major transit
corridor. Program 1.1 addresses the zoning constraint imposed by modifying the landscaping coverage
standard to achieve Sites Inventory densities.
To incentivize greater housing production potential, as an alternative to State Density Bonus Law, Program
3.4 proposes changes to the Housing Incentive Program. For example, greater building height and
adjustments to the daylight plane, could be used to achieve more density, while bringing the parking
above-grade. Further, the Housing Incentive Program offers 100 percent below-market rate projects relief
from these other development standards, including parking as low as 0.75/unit, height up to 50 feet, and
landscaping above the ground-floor.
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Figure 4-4 RM-20 Zone Model
This 10,000 square foot site accommodates four townhome units, achieving 18 du/ac in a zone that allows
20 du/ac. The model takes into account setbacks, 30-foot height limit, daylight plane requirements, 35
percent lot coverage, 35 percent ground-floor landscaping and 150 square feet per unit open space
requirements and achieves the 8 parking spaces required for 3- and 4-bedroom units through tuck-under
and surface parking. State law already allows up to at least 1.0 FAR. The resulting 3-story attached
townhome typology is a wood construction type that is cost effective and commonly found in the area.
Surface and tuck-under parking are likewise cost effective.
Existing zoning and proposed Housing Element programs provide a path for how to achieve even more
units. Program 1.1A requires RM sites to receive a density increase, in this case from 20 to 30 du/ac. This
would provide the option of more and smaller units (i.e., studios and 1-bedrooms) which carry lower
parking requirements. Thus, this site could achieve five or six units (up to 26 du/ac) while still providing
just seven or eight total parking spaces.
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Figure 4-5 RM-30 Zone Model
This 6,600 square foot site accommodates four townhome units, achieving 27 du/ac in a zone that allows
30 du/ac. The model takes into account setbacks, 35-foot height limit, daylight plane requirements, 40
percent lot coverage, 35 percent ground-floor landscaping and 150 square feet per unit open space
requirements, and achieve the 8 parking spaces required through tuck-under parking. State law already
allows up to at least 1.0 FAR. The resulting 3-story attached townhome typology is a wood construction
type that is cost effective and commonly found in the area.
Existing zoning and proposed Housing Element programs provide a path for how to achieve even more
units. Program 1.1A requires RM sites to receive a density increase, in this case from 30 to 40 du/ac. This
would provide the option of more and smaller units (i.e., studios and 1-bedrooms) which carry lower
parking requirements. Thus, this site could achieve up to six units (up to 40 du/ac) while still providing six
to eight total parking spaces.
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Figure 4-6 RM-40 Zone Model – Parking Compliant with City Code
This 5,000 square foot site accommodates four apartments, achieving 35 du/ac in a zone that allows 40
du/ac. The model takes into account setbacks, 40-foot height limit, daylight plane requirements, 45
percent lot coverage, 20 percent ground-floor landscaping and 150 square feet per unit open space
requirements, and achieves the 7 parking spaces required through a ground-level garage. State law
already allows up to at least 1.0 FAR. The resulting 3-story attached townhome typology is a wood
construction type that is cost effective and commonly found in the area.
State law, existing zoning and proposed Housing Element programs provide a path for how to achieve
even more units. Program 1.1A requires RM sites, to receive a density increase, in this case from 40 to 50
du/ac. On smaller sites distant from transit, mechanical lifts may be necessary to meet parking
requirements while still allowing for circulation in the driveway and garage. Mechanical lifts are allowed
and have been used in Palo Alto as a viable way to shrink the footprint devoted to parking.
Larger sites (e.g., 10,000 sq. ft.) allow for improved garage and driveway circulation that can physically
accommodate parking. But, the City also modeled a 5,000 square foot interior lot, as opposed to a corner
lot, which proved to be more challenging to design driveways and garage circulation. On interior lots, no
parking or reduced parking strategies allowed for higher unit yields. Sites located within ½-mile of transit
may invoke AB2097 parking reductions that would allow for additional unit yield up to 50 du/ac.
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On this small site, to achieve five units (up to 50 du/ac), the model could develop a range of studios or 1-
bedrooms (which carry lower parking requirements) thereby achieving the maximum density while still
providing up to seven total parking spaces, even without the use of mechanical lifts.
Figure 4-7 ROLM Zone Model – Existing Zoning: 16 du/ac Yield
This 1-acre ROLM site accommodates 16 townhome units, achieving 16 du/ac in a zone that allows 30
du/ac. This zone district generally follows the RM-30 zoning standards. Therefore, the model takes into
account setbacks, 35-foot height limit, daylight plane requirements, 40 percent lot coverage, 35 percent
ground-floor landscaping and 150 square feet per unit open space requirements, and achieves the 32
parking spaces required. The resulting 3-story attached townhome typology is a wood construction type
that is cost effective and commonly found in the area.
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However, this model is not achieving the full allowable density, which allows for up to 30 dwelling units.
With the current standards, 30 units are not feasible on this 1-acre site. This is primarily due to the 40
percent lot coverage and 0.6 FAR limits, and to some extent the depth of the parcel which necessitates a
full hammerhead design to accommodate Fire Department access. These standards represent a constraint
to achieving the density set forth in the code. Ways to rectify this constraint are described below.
Figure 4-8 ROLM Zone Model – Existing Zoning: 30 du/ac Yield
The figure above explores what it will take to achieve 30 du/ac and transition from a townhome to an
apartment typology, namely: (1) a taller height limit (from 35 to 45 feet) to accommodate unit sizes and
allow for all tuck under parking, (2) increased lot coverage from 40 percent to 70 percent, (3) FAR of
1.25; (4) parking reduced to 1 space per studio/1-bedroom and 1.25 spaces per 2+ bedroom.
However, the Housing Element strategy for this portion of the GM/ROLM in Bayshore in the Sites
Inventory anticipates a density of up to 70 du/ac, as shown below.
Figure 4-9 ROLM Zone Model – Proposed Zoning (Program 1.1): 70 du/ac Yield
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Proposed Housing Element programs provide a path for how to achieve a density of 70 du/ac. At this
density, the housing typology transitions to stacked flats (apartments or condos). In addition to increasing
density standards, this model assumes a number of possible changes to development standards that
would reduce this constraint: (1) height limit from 35 to 55 feet; (2) lot coverage increase from 40 percent
to 70 percent, (3) FAR up to 2.0; (4) allowance for the 20 percent landscaping requirement to be met
above the ground-floor; and (5) 1 space per studio/1-bedroom and 1.25-1.5 spaces per 2+ bedroom.
Program 1.1 addresses the zoning constraint imposed by existing zoning regulations by modifying a
combination of standards, such as height, FAR, lot coverage, landscaping, and parking to enable housing
production at the density proposed in the Sites Inventory.
S INGLE R OOM O CCUPANCY U NITS
The Palo Alto Zoning Ordinance allows Single Room Occupancy (SRO) units as a multiple tenant structure
with individual resident rooms. The City permits SRO units in CN, CC, and CS zones and multi-family
residential zoning districts as shown in Table 4-3 using development standards that encourage the
construction of the maximum number of units. Sites that have access to community services and public
transportation are highly desired for SRO residents. Tenants typically share bathrooms and/or kitchens,
while some rooms may include kitchenettes, bathrooms, or half-baths.
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Item No. 3. Page 1 of 1
Planning & Transportation Commission
Staff Report
From: Jonathan Lait, Planning and Development Services Director
Lead Department: Planning and Development Services
Meeting Date: September 13, 2023
Report #: 2308-1960
TITLE
Approval of Planning & Transportation Commission Draft Verbatim Minutes of August 9, 2023
RECOMMENDATION
Staff recommends that the Planning & Transportation Commission (PTC) adopt the meeting
minutes.
BACKGROUND
Draft verbatim minutes from the August 9, 2023 Planning and Transportation Commission (PTC)
meeting was made available to the Commissioners prior to the September 13, 2023 meeting
date. The draft PTC minutes can be viewed online on the City’s website at bit.ly/PaloAltoPTC.
ATTACHMENTS
There are no attachments
AUTHOR/TITLE:
Veronica Dao, Administrative Associate
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