HomeMy WebLinkAboutStaff Report 7727
City of Palo Alto (ID # 7727)
City Council Staff Report
Report Type: Action Items Meeting Date: 5/1/2017
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Summary Title: Comp Plan Update - Transportation and Land Use Elements
Title: Comprehensive Plan Update: City Council Review & Direction
Regarding the Revised Draft Land Use & Community Design Element and the
Revised Draft Transportation Element
From: City Manager
Lead Department: Planning and Community Environment
Recommendation
Staff recommends that the City Council review the May 1 Draft Transportation Element in
Attachment A and the May 1 Draft Land Use & Community Design Element in Attachment B,
and provide the following direction to staff in order to facilitate preparation of a final draft of
the Comprehensive Plan Update:
1. Transportation Infrastructure Investments. Please confirm your support for the
following list of infrastructure investments which is included in the text of the Draft
Transportation Element. (Note: While not all of these improvements may prove feasible
during the life of the Comprehensive Plan, and a funding plan would be needed for those
without designated funding, they represent the City’s vision for the future.)
a. Improvements within existing rights-of-way that provide for traffic calming or
relatively small increases in roadway capacity by adding turn lanes or making other
intersection adjustments;
b. Full grade separations for automobiles, pedestrians, and bicyclists at Caltrain
crossings;
c. Retrofit/improvements to existing grade separated Caltrain crossings for pedestrians
and bicyclists at California Avenue and University Avenue;
d. Construction of new pedestrian and bicycle grade separated crossing of Caltrain in
South Palo Alto and in North Palo Alto;
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e. Pedestrian and bicycle improvements derived from the 2012 Bicycle and Pedestrian
Plan as amended over time;
f. The US 101/Adobe Creek bicycle and pedestrian bridge;
g. El Camino Real intersection and pedestrian safety/streetscape improvements;
h. Downtown mobility and safety improvements;
i. Geng Road extension to Laura Lane; and
j. Middlefield Road corridor improvements.
2. Transportation Infrastructure Assumptions. Please confirm your support for the
following list of infrastructure projects that may be constructed by other agencies and
could affect Palo Alto streets during the life of the Comprehensive Plan.
a. Elements of the County’s Expressway Plan 2040 in or near Palo Alto, including
widening Oregon-Page Mill with HOV lanes and a bicycle/pedestrian trail
between I-280 and Foothill Expressway, intersection improvements along
Oregon-Page Mill between Porter and Hansen and at El Camino Real,
reconfiguration of the interchange at I-280/Oregon-Page Mill Road, and an
ITS/signal system Countywide;
b. US 101 southbound improvements from San Antonio Road and Rengstorff Ave.;
c. Caltrain modernization including electrification;
d. Bus rapid transit in mixed flow lanes on El Camino Real using curbside boarding
platforms and queue jumping; and
e. Improved circulation in the Palo Alto Transit Center, including direct access to El
Camino Real for transit vehicles.
3. Other Transportation Element Revisions. Please confirm support for the tracked
changes in the Draft Transportation Element in Attachment C, which reflect City Council
direction on September 19, 2016 as well as staff-initiated updates to implementation
programs. Specifically, please confirm the Element’s emphasis on:
a. Reducing reliance on single occupant vehicles through TDM, expansion of the
shuttle program, bicycle & pedestrian improvements, and other means;
b. Effective first mile/last mile solutions;
c. Continuing to work to address traffic congestion;
d. Enhancing connectivity;
e. Addressing neighborhood impacts;
f. Meeting parking demand and evaluating changing parking needs over time;
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g. Prioritizing pedestrian and cyclist safety;
h. Meeting the needs of transit dependent communities;
i. Preparing for technological and societal changes that will affect transportation
and parking demand; and
j. Prioritizing Caltrain grade separations and regional cooperation.
4. Land Use & Community Design Revisions. Please confirm support for the tracked
changes in the Draft Land Use & Community Design Element in Attachment D, which
reflect City Council direction on January 30, 2017 as well as staff-initiated changes to
eliminate redundancies and update for progress on transportation programs since the
Council’s September review.
5. Alignment of the Land Use & Transportation Elements. Please consider the extent to
which the two revised elements reviewed this evening are in alignment and identify
needed adjustments.
Executive Summary
The Transportation and Land Use Element are arguably the heart and soul of the City’s
Comprehensive Plan and have been the subject of considerable discussions and deliberations
since the Comprehensive Plan Update began in 2008.
The revised Draft Transportation Element in Attachment A reflects revisions based on the City
Council’s input on a prior draft prepared by the Citizens Advisory Committee (CAC), as well as
staff recommended changes to improve clarity and eliminate redundancies, and articulates a
clear vision for the future of Palo Alto, with an emphasis on reducing reliance on single
occupant vehicles, addressing neighborhood impacts, better serving transit dependent
communities, pursuing Caltrain grade separations, and regional cooperation. The
recommended action would confirm this emphasis and the infrastructure investments that may
occur over the life of the plan.
Attachment C uses tracked changes to show revisions since the Council’s review in September
2016. The revisions are summarized in this staff report, below, which also contains a link to the
prior staff report and draft document.
The revised Draft Land Use & Community Design Element in Attachment B reflects revisions
based on the City Council’s input on a prior draft prepared by the CAC and emphasizes the need
to preserve and expand housing options in Palo Alto, and lays out a policy framework to
address this need, to cap office/R&D development, to preserve neighborhood centers, and to
preserve community character, among other things. The recommended action would confirm
this emphasis, the policy framework, and revisions to the implementation programs based on
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the Council’s direction on January 30 and March 27, 2017.
Attachment D uses tracked changes to show revisions from the adopted Land Use &
Community Design Element (although some sections have been moved around without
showing them as deleted and added). The revisions are summarized in this staff report below,
which also contains a link to the prior staff reports and draft document. The full text of
Council’s motions from January 30 and March 27, 2017 are included in Attachment E for
informational purposes, although pertinent sections are summarized in Table 1.
Following the City Council’s review of these draft elements, three other elements (Safety,
Natural Environment, and Business & Economics), and additional chapters of the Comp Plan
(Introduction, Governance, and Implementation), staff will be asking the City Council to refer a
full draft of the Comprehensive Plan Update to the Planning & Transportation Commission for a
recommendation, facilitating the City Council’s consideration and adoption of a final version
later this year. Separately, the City is preparing a Final EIR that responds to comments on the
2016 Draft EIR and the 2017 Supplement to the Draft EIR and describes a Preferred Scenario
that reflects the Council’s input on March 27, 2017 and this evening. The Comprehensive Plan
Update may not be adopted until the Council has certified the Final EIR.
Background
The 1998-2010 Palo Alto Comprehensive Plan contains the City’s official policies on land use
and community design, transportation, housing, the natural environment, business and
economics, community services, and governance. The Comprehensive Plan provides the basis
for the City’s development regulations and the foundation for its capital improvement program.
An update of the Comprehensive Plan was initiated by the City Council in 2006 and commenced
in 2008.
In 2014, the Council received the Planning & Transportation Commission’s (PTC’s) suggested
revisions and endorsed a new framework for the planning process to include broad community
engagement, discussion, and analysis of alternative futures, cumulative impacts, and mitigation
strategies. A community “summit” was held in mid-2015, and a Citizens Advisory Committee
(CAC) was formed to make recommendations to the City Council on policies and programs for
inclusion in the update.
Since 2014, the City Council has provided guidance on the vision and goals for each element of
the Comprehensive Plan Update, and the CAC has completed its review and recommendations
regarding all of the chapters or “elements” of the plan. The City Council is now in the process
of reviewing the CAC’s work, and providing their input on plan revisions to city staff and
consultants.
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As described in the staff reports for September 19, 2016, November 28, 2016, and January 30,
2017, which are available at the links below, the Draft Land Use and Transportation Elements
are the products of many, many meetings and substantial efforts by the full Comprehensive
Plan CAC, subcommittees of the CAC, staff and consultants. They were based on a close reading
of the existing Comprehensive Plan and the changes recommended by the Planning &
Transportation Commission in early 2014, as well as public input received throughout the
planning process.
Prior staff reports are located here:
September 19, 2016: http://www.cityofpaloalto.org/civicax/filebank/documents/53793
November 28, 2016: http://www.cityofpaloalto.org/civicax/filebank/documents/54761
January 30, 2017: http://www.cityofpaloalto.org/civicax/filebank/documents/55582
The Comprehensive Plan and these specific elements are requirements of State law, and the
drafts provided here, have been crafted to meet State requirements and to express the
community’s collective vision for Palo Alto.
Discussion: Revisions to the Draft Transportation Element
The revised Draft Transportation Element in Attachment A has been prepared to address City
Council comments received in September 2016, as well as some corrections/additions
necessary to reflect ongoing initiatives and capital projects. For example, as requested by
Councilmembers, existing Comprehensive Plan Policy T-47 “Protect residential areas from the
parking impacts of nearby business districts” has been reinstituted verbatim (Policy T- 5.10).1
Other policy revisions include the addition of some specificity to the TDM requirements in
Program T1.2.2, and strong support for the Palo Alto TMA in Policy T-1.2.
Revisions to the Element’s background information (page T-14 in Attachment A) also include an
updated list of capital projects expected during the life of the plan, and this list should be
reviewed carefully. All of the projects should be familiar to the Council with the possible
exception of the Geng Road extension. This short section of road would require right-of-way
acquisition and would extend Geng Road to Laura Lane through what is now a parking lot. If
ultimately feasible, this project would help to address delays at the intersection of Bayshore
Blvd. and Embarcadero.
There were a number of City Council comments requesting additional information. These are
responded to below:
1 If Council is amenable, staff would recommend a slight wording change to say “Work to protect residential
areas…” because it will still take a number of years to reduce spillover employee parking demand in the Downtown
and Evergreen Park/Mayfield Residential Preferential Parking districts. (This suggestion has not been incorporated
in the revised draft element.)
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Lane Splitting. AB 51, which was effective January 1, 2017, authorizes the CHP to adopt
“educational guidelines” about “lane splitting.” In general, the State Vehicle Code
preempts cities ability to adopt traffic regulations in conflict with State law. However we
do not know whether the State will adopt regulations that apply to local streets or just
to highways.
East Meadow. Staff has confirmed that roadway designations have not been proposed
for change.
There were also Council comments on policies that have not been incorporated, either because
staff was unsure whether there was Council agreement, or it was not clear how the comment
could/should be incorporated. These are described below:
Revisions do not include a specific threshold of significance for intersection Level of
Service, but the element does include a program to develop one. This approach
recognizes that due to changes in State law, the City Council will need to adopt new
significance thresholds for CEQA purposes by resolution in the next two years, and that
same resolution could contain desired policy thresholds (Program T-2.3.1). This
approach will allow for further deliberations regarding the potential impacts to City
projects like the recent effort to address traffic on Middlefield North if changes are
made to the intersection LOS threshold that Palo Alto has used for many years.
Revisions also do not address the old underpass at El Camino Real near Page Mill Road
because of concerns that the underpass is not safe or accessible to persons with
disabilities.
We also did not delete the policy (Policy T-6.2) reference to “vision zero,” which is a goal
that more and more communities are embracing related to traffic safety. The ten year
time frame to achieve this goal was deleted.
Finally, the revisions attempt to streamline the text somewhat and have eliminated some
programs, but do not reduce the size of the element as much as some Councilmembers might
wish. Additional suggestions are welcome.
Discussion: Revisions to the Draft Land Use & Community Design Element
On January 30, 2016, the Council made a series of motions with specific direction on Land Use
Element policy and program wording to keep, add, or revise. The table below contains the text
of the motion alongside the specific outcome in the element.
A note on numbering: each policy and program that appeared in the January 30 draft of the
Land Use and Community Design Element has two numbers:
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A consecutive policy or program number based on the corresponding goal number, at
the beginning of the text. This number changes with the ordering of the policies and
programs.
A "unique identifier" in brackets at the end of the text. This is an individual number
assigned to each policy or program. It moves with the policy or program and does not
change when the text moves. It is intended to allow readers to track the evolution of a
given policy or program across multiple drafts of the Element.
Table 1: January 30, 2017 Council Direction on the Land Use Element
Adopted City Council Motions* Resulting Revisions
to the Draft Element
MOTION AS AMENDED RESTATED: Council Member Wolbach
moved, seconded by Mayor Scharff to direct Staff to include in
the final Draft of the Comprehensive Plan Update:
A. Cumulative Cap: Policy L-1.10 would maintain a
Cumulative Cap of 1.7 million square feet, which is the square
footage remaining under the existing cap, focus the Cap on
Office/R&D uses and apply it citywide rather than only in
“monitored areas.” It would also exempt medical office uses in
the Stanford University Medical Center (SUMC) area (the
current Cap does not apply to this geographic area), and
require annual monitoring to assess the effectiveness of
development requirements and determine whether the Cap
and the development requirements should be adjusted; and
- Revised narrative section on
Cumulative Growth Cap to remove
reference to a hotel cap
-Kept Policy option L-1.10 [L15],
now renumbered as L-1.9
-Deleted other versions of cap in
Policy options L-1.9 [L13] and L-1.11
[L16] and associated Programs
-Kept Program L1.9.1 [L19]
regarding re-evaluating cap as cap is
approached.
B. Annual Limit: Direct Staff to make permanent the
Annual Limit Ordinance of 50,000 Square Feet, separate from
the Comprehensive Plan Update; and
-Revised narrative section and
revised Policy L-1.14 [L23] to
become Program L1.9.2 to update
the annual limit ordinance to make
it permanent.
-Deleted all other Policy options in
Annual Limit Options section: L-1.13
[L22] to L-1.16 [L25]
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Adopted City Council Motions* Resulting Revisions
to the Draft Element
C. Downtown Cap: Eliminate the Downtown Cap found
in existing Program L-8 and focus on monitoring development
and parking demand.
-Deleted Programs L-1.16.1 [L26], L-
1.16.2 [L27], L-1.16.3 [L28], L-1.16.4
[L29], and L-1.16.6 [L31]
- Program L1.16.5 [L30] was not
deleted, but was combined with two
other programs regarding
conversion of FAR, now Program
L2.4.4 [L21].
MOTION AS AMENDED PASSED: 5-4 DuBois, Filseth, Holman,
Kou no
MOTION: Vice Mayor Kniss moved, seconded by Council
Member Wolbach to maintain the current 50 foot height limit
separate from the Comprehensive Plan Update, continuing as
an Ordinance.
MOTION PASSED: 7-2 DuBois, Holman no
-Height limit was not in narrative; no
change to narrative
-Deleted Policy options L-6.7 [L111]
through L-6.10 [L115] and
associated programs
MOTION: Council Member Wolbach moved, seconded by Vice
Mayor Kniss to direct Staff to exclude from the final draft of
the Comprehensive Plan Update “child care” from the list of
typical Neighborhood Commercial uses.
MOTION PASSED: 6-3 Filseth, Fine, Tanaka no
-Deleted words “child care” from
Neighborhood Commercial
designation on p. L-24
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Adopted City Council Motions* Resulting Revisions
to the Draft Element
MOTION AS AMENDED RESTATED: Council Member Fine
moved, seconded by Council Member DuBois to direct Staff to
include in the final draft of the Comprehensive Plan Update:
A. Explore multifamily housing at the Stanford Shopping
Center, provided adequate parking and vibrant retail is
maintained, as alluded to in Policy L-4.7 (the language could
be strengthened); and
B. 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; and
C. Not support housing in the Town & Country area; and
D. Include a new program to explore multifamily housing
near Stanford University Medical Center (SUMC).
MOTION AS AMENDED PASSED: 9-0
- Revised Policy L-4.7 [L80] per
wording in Motion. This wording is
now located in Program 2.4.2 under
an overall policy about stimulating
housing.
-Policies L-4.11 [L88] through L-4.13
[L90] focus on retail in Town &
Country.
-Program L2.4.4 [L21] regarding
converting non-retail FAR to
residential says conversion to
residential FAR should not be
considered in Town & Country.
- Added new Program regarding
housing near SUMC under Policy L-
2.3 [L47]
MOTION: Council Member DuBois moved, seconded by
Mayor Scharff to direct Staff to include in the final draft of the
Comprehensive Plan Update, a new program to eliminate
housing sites along San Antonio Road and increase residential
densities in Downtown and the California Avenue Area to
replace potential units on the sites eliminated.
MOTION PASSED: 6-3 Filseth, Kniss, Kou
- Added new Program regarding
housing sites under Policy L-2.3
[L47]
MOTION AS AMENDED RESTATED: Council Member Fine
moved, seconded by Vice Mayor Kniss to direct Staff to
include in the final draft of the Comprehensive Plan Update:
A. Eliminate Development Requirements and Community
Indicators in the Comprehensive Plan; and
-Deleted related sections in the
narrative section (p. L-12,13)
-Retained first sentence of Policy L-
1.17 [L32] to “achieve the highest
quality development with the least
impacts,” but deleted specific
development requirements.
B. Direct Staff to consider a Community Indicator
Program as part of the next iteration of the Annual
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Adopted City Council Motions* Resulting Revisions
to the Draft Element
Performance Report or another on-going monitoring
effort.
MOTION AS AMENDED PASSED: 8-1 Holman no
-Deleted all other Policies and
Programs in the Development
Requirements and Community
Indicators section of Goal L-1 that
refer to creating development
requirements and community
indicators shown in Table L-1 and L-
2, as well as Table L-1 and Table L-2.
-No change to Comp Plan;
monitoring will happen through
separate effort.
MOTION: Council Member Wolbach moved, seconded by
Council Member Fine to direct Staff to include in the final draft
of the Comprehensive Plan Update, Policy L-2.3 about
encouraging a mix of housing types and sizes designed for
greater affordability and Policy 3.4 about encouraging a mix of
smaller housing types.
MOTION PASSED: 8-0-1 DuBois abstain
-Kept Policy L-2.3 [L47] and merged
Policy L-3.4 [L60] into it.
MOTION: Council Member Holman moved, seconded by
Council Member Fine to direct Staff to include in the final draft
of the Comprehensive Plan Update Policy L-3.5 and associated
Program L-3.5.1 regarding ways to minimize displacement of
existing residents.
MOTION PASSED: 8-0-1 Tanaka abstain
-Kept Policy; now renumbered as
Policy L-2.8 [L57]
-Kept Program; now renumbered as
Program L2.8.1 [L58]
MOTION: Vice Mayor Kniss moved, seconded by Council
Member Wolbach to direct Staff to include in the final draft of
the Comprehensive Plan Update, policies and programs like
Policy L-4.1, Program L-3.2.1, and Program L-6.12.4 about
preserving ground floor retail space.
MOTION PASSED: 5-0-4 Filseth, Holman, Kou, Scharff abstain
-Kept Policy L-4.1 [L65]
-Kept Program L-3.2.1 [L52]
-Kept Program L-6.12.4 [L124]; now
renumbered as Policy L-2.9.
MOTION: Council Member DuBois moved, seconded by
Council Member Kou to direct Staff to include in the final draft
of the Comprehensive Plan Update, maintain Policy L-3.3
and/or Policy L-3.6 (some repetition can be eliminated) and
associated Program L-3.3.1 about preserving existing housing
that is affordable, such as small cottage clusters, removing
from Program L-3.3.1, “and the replacement of rental housing
units with ownership housing units.”
-Kept these policy concepts, but
relocated one to Goal L-2. Now
Policy L-2.7 [L53] and Policy L-3.4
[L61].
-Deleted wording about rental
housing from Program L-3.3.1 [L54],
which is now renumbered as
Program L2.7.1 [L54].
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Adopted City Council Motions* Resulting Revisions
to the Draft Element
MOTION PASSED: 6-0-3 Kou, Tanaka, Wolbach abstain
MOTION: Council Member Wolbach moved, seconded by Vice
Mayor Kniss to direct Staff to include in the final draft of the
Comprehensive Plan Update, Program L-1.16.5 (we will fix the
numbering problem here) or L-7.12.1 (some repetition can be
eliminated) to revise or consider revising the Transferable
Development Rights (TDR) Program Downtown to create
bonus residential rather than commercial square footage.
MOTION PASSED: 7-0-2 Filseth, Tanaka abstain
-Kept both Programs L-1.16.5 [L30]
and L-7.12.1 [L145] and merged to
eliminate repetition. New combined
Policy is L-7.13.
- Added new, more general program
regarding revisions to TDR program;
see Program L-2.4.6.
MOTION AS AMENDED RESTATED: Mayor Scharff moved,
seconded by Council Member Tanaka to direct Staff to include
in the final draft of the Comprehensive Plan Update, a
program to explore increasing hotel Floor Area Ratio (FAR)
from 2.0 to 3.0 in areas inside of Downtown and 2.5 in other
areas.”
MOTION AS AMENDED PASSED: 5-3-1 DuBois, Holman, Kou
no, Filseth abstain
-Added new Program in new Hotel
section of Goal L-4. See Program
L4.4.1 [L201].
MOTION: Council Member DuBois moved, seconded by
Council Member Filseth to direct Staff to eliminate from the
final draft of the Comprehensive Plan Update Program L-4.2.1
regarding preparation of a Coordinated Area Plan for South El
Camino (pp. L-48 through L-49).
MOTION PASSED: 6-2-1 Fine, Tanaka no, Filseth abstain
-Deleted Program L-4.2.1 [L68] +
map.
MOTION: Council Member Holman moved, seconded by
Council Member Filseth to direct Staff to restore in the final
draft of the Comprehensive Plan Update, existing Policy L-6
language about preserving neighborhood character (“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.”) This is in lieu of the new language
proposed in Policy L-6.11.
MOTION PASSED: 5-2-2 Scharff, Wolbach no, Fine, Tanaka
abstain
-Revised Policy to revert to original
language from existing Policy L-6.
Now renumbered as Policy L-6.7
[L117]
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Adopted City Council Motions* Resulting Revisions
to the Draft Element
*This list contains only the final motions (as amended) that were adopted by a majority of the Council
to affect changes to the draft element. Two motions that failed resulted in deletion of Policy L-4.10
[L86] and Program L-9.4.1 [L167] about sidewalk widths on El Camino Real. Successful motions
related to the placement of programs (which was reconsidered on March 27, 2017) are not included.
For the full list of motions, substitute motions, amendments and motions that failed to garner a
majority, please see Attachment E.
Source: Palo Alto Department of Planning & Community Environment, April 2017
To improve the usability and organization of the element, the attached draft reflects some
additional staff-recommended changes. These primarily affect the organization of policies and
programs and attempt to eliminate redundancies as described in Table 2 below.
A fundamental principle underlying many of these recommendations is that important concepts
should generally have a single location in the Comprehensive Plan. Although many of these
concepts – such as improvements at the Palo Alto Transit Center, or care for the urban forest –
are very important, it is a misconception that the importance of a topic should be reflected
through numerous statements of the same idea across multiple elements. While elements must
be internally consistent and mutually supportive, the observation of staff and the consultant
has been that having multiple similar policies in multiple locations actually creates confusion
and uncertainty, and thereby reduces the likelihood of successful implementation. Instead, a
single, clear policy or program is much more likely to result in action. Please see Table 2 below
and the annotations in Attachment D for an indication of policies and programs that have been
moved or consolidated.
Table 2: Additional Staff-Recommended Revisions to the Land Use Element
Section Revisions
Narrative
Added section on housing supply in City Evolution
Revised Growth Management section to reflect Council direction on
January 30, 2017.
Deleted Downtown Cap section and moved discussion of current
pressure for office space to Downtown section of City Structure
Deleted sections on Annual Limit, Development Requirements, and
Community Indicators
Added a statement to address requirements of SB 244 (codified as
Government Code Section 65302.10) requiring the City to address
disadvantaged unincorporated communities
Goal L-1 Moved Program L-1.3.2 [L6] about flooding and seal level rise to the Safety
Element, which already has a section of policies and programs addressing
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Section Revisions
the same topic.
Moved Policy L-1.6 [L67] about use of Coordinated Area Plans in general to
the “regulating Land Use” section of Goal L-1.
Program L-1.10.2 [L10]: Consolidated three separate programs about
conversion of non-retail commercial FAR to residential FAR, where
appropriate.
Goal L-2
Policy L-2.3 (includes [L47] and [L60]): Consolidated Council direction on
housing supply policies and encouraging a range of smaller unit types.
Added a new Policy, L-2.4, to provide an umbrella for six programs that are
possible strategies to stimulate housing. These programs are a combination
of the Council motion on March 20, 2017, regarding the Preferred Scenario,
and draft programs that were previously located elsewhere in the Land Use
Element.
Policy L-2.5 [L55], Program L2.5.1 [L56], Policy L-2.7 [L53], Program L2.7.1
[L54], and Policy L-2.8 [L57]: Shifted and renumbered policies and programs
about creating housing unit, retaining existing units, and minimizing
displacement from Goal L-3 to Goal L-2, where other housing supply policies
are located.
Policy LU-2.6 [L120]: moved and renumbered policy about new mixed use
development from Goal L-6 to Goal L-2.
Policy L-2.9 [L124]: Moved policy about preserving ground floor retail from
Goal L-6 to Goal L-2.
Policy L-2.12 [L5]: moved policy about potential risks from climate change
from Goal L-1 to Goal L-2.
Goal L-3 Merged Policy L-3.3 [L60] about a mix of smaller housing types with similar
Policy L-2.3 [L47].
Goal L-4
Reorganized programs under Policy L-4.3 [L71]. The content of the Programs
did not change.
Created a new section on hotels to provide a single location for hotel-related
policy and program.
Deleted Program L-4.6.1 [L78] regarding pedestrian, bike, and transit
connections to and from the Palo Alto Transit Center; redundant with
Transportation Element Program T-1.10-1 to pursue improvements at the
Transit Center to improve access for all modes.
Removed reference to Transit Center in Program L-4.6.2 [L79]; this is
addressed in the Transportation Element Program T-1.10-1.
Deleted reference to housing at Stanford Shopping Center from Policy L-4.7
[L80] because housing at Stanford Shopping Center is referenced in new
Program L2.4.2.
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Section Revisions
Program L4.8.1 [L69]: Consolidated two programs [L69] and [L83] about
preparing a Coordinated Area Plan for California Avenue and the Fry’s site
into a single program.
Deleted Program L-4.9.1 about east-west connections across El Camino Real
as redundant with Policy T-3.13 about east-west connections in the
Transportation Element.
Policy L-4.16 [L93]: Slightly revised to reduce wordiness.
Goal L-5
Policy L-5.1 [L94]: Merged similar Policy L-5.4 [L97] about compact, walkable
employment centers that encourage transit use.
Deleted Program L-5.4.1 [L101] about the East Meadow Circle Concept Plan
as redundant with Policy L-5.4 [L100] immediately above.
Goal L-6
Program L6.6.1: Merged two programs that are both about relationship of
new mixed-use buildings to the street and appropriate human-scale
architectural treatment.
Goal L-7 No staff-recommended changes.
Goal L-8
Added word “parks” to Goal L-8 because policies and programs under this
goal address parks.
Moved programs associated with Policy L-8.1 [L150], about creation of new
parkland, to Community Services and Facilities Element, which has a section
on acquiring and maintaining parkland for residents. Policies and programs
in the Land Use Element focus on parks and public spaces as a land use
category; Community Services and Facilities addresses the mechanics of
ensuring that parks are available as a community service.
Goal L-9
Moved Policy L-9.4 [L165] and Program L9.9.2 [L178] about parking lot
design to Parking section of the Transportation Element (Goal T-5).
Deleted Program L9.4.1 and Policy L-9.12 [L166] about tree maintenance;
redundant with much more detailed and specific programs in the Urban
Forest section of the Natural Environment Element (Goal N-2).
Moved Program L9.14.1 regarding telecommunications to the Safety
Element, where other telecommunications policy and programs are located.
Moved Policy L-9.15 [L189] to Natural Environment Element section on
preserving and protecting the Baylands (Goal N-1)
Goal L-10
Moved Policy L-10.2 [L188], about regulating land use in the Airport
Influence Area consistent with the Baylands Master Plan, from Goal L-9
about public spaces to Goal L-10 about the Palo Alto Airport.
Source: Palo Alto Department of Planning & Community Environment, April 2017
City of Palo Alto Page 15
Substantive changes to the Land Use Map have not been anticipated as part of the
Comprehensive Plan Update. However, the Land Use Map in the attached Draft Element
includes two corrections:
Stanford lands outside of the City limits and sphere of influence (SOI) are shown as
blank on the map, similar to the way the map labels, but does not provide designations
for, surrounding communities like Los Altos or Mountain View. This is because all land
outside the SOI is outside the City’s jurisdiction. Stanford lands within the SOI but
outside the City limits are shown with designations consistent with the Community Plan.
Designations for Stanford lands within the City, such as Stanford University Medical
Center (SUMC), Stanford Shopping Center, and the Stanford Research Park, have not
changed.
The designation on the former Hyatt Rickey’s site has been changed to reflect its
existing use; the former Multifamily Residential with Hotel Overlay is replaced with
Multifamily Residential.
All other maps in the existing Land Use Element are being carried forward, although many have
an updated format and symbology in order to be internally consistent with other
Comprehensive Plan maps.
Policy Implications
The Comprehensive Plan is the City’s “constitution” when it comes to land use and
development issues, including transportation and the protection of the environment. The
Comprehensive Plan Update is expected to perpetuate the overall vision and values of the
current plan, while updating some of its goals, policies, and implementation programs.
Resource Impact
The Comprehensive Plan Update has been a time consuming and costly project for the City.
Current contracts are sufficient to complete the project provided in accordance with the
current schedule, which envisions completion of the CAC process in May and adoption of an
updated plan by the end of the year.
Timeline/Next Steps
Tonight’s hearing is expected to be the City Council’s last review of the Land Use and
Transportation Elements until a full draft of the Comprehensive Plan Update is returned to the
City Council for review and consideration following a recommendation by the Planning and
Transportation Commission. Upcoming events and next steps are summarized in Table 3
below.
Table 3: Timeline and Next Steps for Council and PTC
City of Palo Alto Page 16
Date Topics/Action Requested
May 1, 2017 Council Review of the Revised Draft Land Use & Transportation
Elements
May 15, 2017 Council Review of the Draft Natural Environment, Safety, and
Business/Economics Elements recommended by the CAC
June 5, 2017 CAC resolution of thanks
June 12, 2017 Council Review of draft Introductory Materials/Governance and
referral to the Planning & Transportation Commission (PTC)
July/Aug/Sep 2017 PTC Review & Recommendation Regarding the draft Comprehensive
Plan Update
Oct/Nov/Dec 2017 Council Receipt of the PTC’s recommendation and the Final EIR for
consideration and action
Source: Palo Alto Planning & Community Environment, April 2017
Environmental Review
A Final Environmental Impact Report (EIR) is being prepared. It will respond to comments on
the Draft EIR and the Supplement to the Draft EIR received during the public circulation period
and describe the “preferred scenario” based on the Council’s input on March 27, 2017 and this
evening. The Final EIR must be completed and certified before the City Council can take action
to approve the Comprehensive Plan Update.
Attachments:
Attachment A: CompPlanTransportationElement-May_1_CC_FINAL_CLEAN (PDF)
Attachment B: CompPlanUpdateLandUseElement-May_1_CC_FINAL_CLEAN (PDF)
Attachment C: CompPlanTransportationElement-May_1_CC_FINAL_TRACKED (PDF)
Attachment D: CompPlanLandUseElement_May_1_CC_FINAL_TRACKED (PDF)
Attachment E: Jan 30 2017 and Mar 27 2017 Council Action Minutes (PDF)
TRANSPORTATION
REVISED COUNCIL DRAFT – MAY 1, 2017 T-1
2
This Element has been prepared by City staff on the basis of input from the CAC, the
Transportation subcommittee and members of the public received between October
2015 and July 2016. Additionally, this revised draft Element presents changes made
in response to City Council review on September 19, 2016.
INTRODUCTION
This Element addresses transportation and mobility issues comprehensively and
acknowledges that the future will be different than the present and the past.
Recognizing changing demographics and travel preferences, new technologies, and
new opportunities, the Element provides a policy framework which includes
solutions for implementation today in order to lay the groundwork for the future.
Together with investments in infrastructure, the policy framework seeks to reduce
reliance on single occupant vehicles, address congestion, and reduce through traffic
and non-resident parking in Palo Alto neighborhoods, leading to an integrated
transportation system that serves local, regional, and intercity travel.
This Element meets the State requirement for a Circulation Element, addressing the
various aspects of circulation, including complete streets, expressways and freeways,
transit, walking, bicycling, parking, and special transportation needs.
VISION: Palo Alto will build and maintain a sustainable network
of safe, accessible and efficient transportation and parking
solutions for all users and modes, while protecting and
enhancing the quality of life in Palo Alto. Programs will include
alternative and innovate transportation processes, and the
adverse impacts of automobile traffic on the environment in
general and residential streets in particular will be reduced.
Streets will be safe, attractive and designed to enhance the
quality and aesthetics of Palo Alto neighborhoods. Palo Alto
recognizes the regional nature of our transportation system, and
will be a leader in seeking regional transportation solutions,
prioritizing Caltrain service improvements and railroad grade
separations.
PALO ALTO COMPREHENSIVE PLAN
TRANSPORTATION ELEMENT
T-2 REVISED COUNCIL DRAFT – MAY 1, 2017
CONNECTIONS TO OTHER ELEMENTS
Transportation choices and options are shaped by many factors including land use,
economics, and community values. The Transportation Element is strongly
influenced by the Land Use Element and Housing Element because the distribution
and density of residential, commercial, and office uses have a direct correlation to
the type, frequency, and use of transportation options a community employs. The
Transportation Element also supports the objectives of the Business and Economics
Element, Community Services and Facilities Element, and the Natural Environment
Element, and the Safety Element by paving the way for a transportation system that
emphasizes walkable neighborhoods and access services in a manner that limits
impacts to the natural environment.
SUSTAINABLE TRANSPORTATION
In 2014, more than 60 percent of all trips made each day in Palo Alto involved
single-occupant motor vehicles. Although the drive alone rate is lower than in many
other Bay Area communities, road travel is still the greatest single source of local
greenhouse gas (GHG) emissions and derives from local (internal) trips as well as
commute trips. Building a more sustainable transportation system will require
addressing regional and local travel patterns, as well as trips made for work, school,
errands or entertainment.
The key to a sustainable transportation system lies in providing more options and
more convenience so that people will more readily choose not to drive. Palo Altans
recognize that, at times, driving is necessary, but to address congestion, climate
change, and improve overall quality of life, the policies and programs in this Element
must focus on providing convenient, affordable alternatives to the automobile.
Facilitating a shift to alternative modes of transportation will require creative
collaboration among transit agencies, employers, and local jurisdictions as well as
residents and commuters themselves. Technology also has a role to play, whether
providing up-to-the minute information to inform choices or in delivering new and
better modes of travel. Improvements to the bicycling and pedestrian environment
will help encourage more people to bike and walk on a regular basis.
TRANSPORTATION DEMAND MANAGEMENT
Transportation demand management (TDM) refers to strategies that improve
transportation system efficiency and reduce congestion by shifting trips from single-
61% 23%
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PALO ALTO COMPREHENSIVE PLAN
TRANSPORTATION ELEMENT
REVISED COUNCIL DRAFT – MAY 1, 2017 T-3
occupant vehicles to collective forms of transport, including mass transit, carpools
and private shuttles. TDM is a critical component of a comprehensive strategy to
reduce traffic congestion. TDM programs are typically incorporated in new
development and can include a range of infrastructure investments and incentives
for the use of alternatives to the automobile, as well as parking management
strategies and marketing. Employers and local governments often collaborate in
developing and implementing area-wide TDM programs aimed at reducing single
occupant vehicle use by existing employees. These activities can be coordinated
through a transportation management association (TMA) made up of local
businesses in a commercial district or industrial park. Stanford University operates a
comprehensive and successful TDM program for the University, and the Medical
Center, and a program is in development for the Research Park. In January 2015, the
City of Palo Alto supported establishment of a TMA for the downtown area, in
collaboration with local businesses and residents. The success of this effort and its
potential to expand to other areas of the City will depend on securing ongoing
funding and on the committed participation of employers who face parking and
traffic challenges in downtown.
ALTERNATIVE FUEL VEHICLES
Alternative fuel vehicles—those that run on electricity, biodiesel, compressed natural
gas and other alternatives to petroleum fuels—help reduce GHG emissions by
utilizing cleaner fuels or zero emission alternatives. In 2014, the City of Palo Alto
adopted an ordinance that requires electric vehicle (EV) – ready infrastructure for all
new commercial construction to encourage the use of electric vehicles and develop
the infrastructure for this growing market. As the City continues this effort, additional
infrastructure may be necessary. However, while alternative fuel vehicles do reduce
GHGs, they are still a contributor to congestion and delay.
MOBILITY AS A SERVICE
The use of transportation services is beginning to replace private vehicle ownership
in the region, led by a number of prominent ride sharing and e-hailing car services
like Uber and Lyft). Originating in Europe, the concept of “Mobility as a Service”
(MaaS), allows on-demand trip planning enabled by smartphones and mobile
devices and provided by "pop up" bus-, car-, and bike-sharing services. Palo Alto is
partnering with Joint Venture Silicon Valley, the Santa Clara Valley Transportation
Authority (VTA), and the City of San Jose to develop a MaaS/smartphone app
(Commuter Wallet) that combines access to multiple transportation modes and
employer commute benefits, incentivizing non-single-occupant vehicle travel.
PALO ALTO COMPREHENSIVE PLAN
TRANSPORTATION ELEMENT
T-4 REVISED COUNCIL DRAFT – MAY 1, 2017
PUBLIC TRANSIT
Residents, workers, and visitors to Palo Alto have an array of transit options within
the city and to the surrounding region. Maps T-1 and T-2 show the range of transit
services in Palo Alto. Map T-1 focuses on regional transit options, and Map T-2
illustrates local transit options. Overall, regional transit is heavily used, while public
transit services serving the local area are below capacity levels. Policies in this
Element support improving local services like shuttles to increase ridership and
support traditional transit providers with first and last mile connections.
RAIL SERVICE
Caltrain is Palo Alto’s primary regional transit service, with riders traveling between
San Francisco and Gilroy. Since introduction of the baby bullet limited express trains
in 2003, ridership has more than doubled and today, the Palo Alto Transit Center is
the second largest generator of weekday Caltrain trips, behind San Francisco’s 4th
and King Street station. Long-range plans for the Palo Alto Station and the adjacent
University Avenue underpass area will enhance the pedestrian experience and
improve circulation and access for all modes. The planned Caltrain extension to the
Transbay Terminal in downtown San Francisco will improve regional transit
connections, and Caltrain electrification will speed service and increase capacity while
decreasing noise and air pollution.
As of late 2015, the San Mateo County Transit District (SamTrans) has re-initiated
study of possible transit service along the Dumbarton corridor, to link Alameda with
San Mateo and Santa Clara Counties.
BUS SERVICE
Three transit providers, VTA, SamTrans, and AC Transit, provide bus service in Palo
Alto, connecting residents to both local and regional destinations. The VTA operates
local bus service within the city, with 14 bus routes in Palo Alto and an express bus
network that serves the Stanford Research Park. VTA also offers connections to VTA
light rail, Caltrain, Altamont Corridor Express (ACE) and AMTRAK Capitol Corridor.
SamTrans operates bus service throughout San Mateo, San Francisco, and Santa
Clara counties, helping to connect Palo Alto to other parts of the Peninsula and
Silicon Valley. AC Transit’s Dumbarton Express provides express bus service between
the East Bay and communities on the Peninsula.
The VTA’s proposed El Camino Real Bus Rapid Transit (BRT) project aims to improve
transit operations and increase transit ridership along the El Camino Real Corridor.
In November 2015, Palo Alto City Council
adopted a complete streets resolution
affirming the City’s longstanding
commitment to design and construction
of a comprehensive, integrated
transportation network that allows safe
and convenient travel along and across
streets for all users, including pedestrians,
bicyclists, persons with disabilities,
motorists, movers of commercial goods,
users and operators of public
transportation, emergency vehicles,
seniors, children, youth, and families.
Council also adopted National
Association of City Transportation Officials
(NACTO) guidelines for bikeway and
urban street design, which incorporate
complete streets best practices.
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Source: Palo Alto Unified School District, 2012; Santa Clara VTA, 2015; SamTrans, 2015; City of Palo Alto, 2015; Caltrain, 2015; PlaceWorks, 2015.Crosstown Shuttle
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PALO ALTO COMPREHENSIVE PLAN
TRANSPORTATION ELEMENT
REVISED COUNCIL DRAFT – MAY 1, 2017 T-7
Policies in this Element support enhanced bus service in shared travel lanes with
curbside stations and signal priority with queue jump lanes to provide faster, more
reliable service with target stops and specialized transit vehicles and facilities.
SHUTTLE SERVICE
There are four types of shuttle services operating in Palo Alto, including the Stanford
University Marguerite shuttle, the VTA shuttle, the City-operated Palo Alto Shuttle,
and private employee shuttles which transit through Palo Alto offering transportation
for employees to other job centers on the Peninsula. The Marguerite, run by
Stanford University Parking and Transportation Services, is a free service that
connects the Stanford campus to the Palo Alto Transit Center and Downtown. The
VTA provides low cost fare based service for residents of Santa Clara County. The
Palo Alto Free Shuttle is free wheelchair-accessible shuttle provided by the City to
connect important destinations in the community, including Caltrain stations; the City
is developing plans for enhanced service in response to community input.
Marguerite and Palo Alto Shuttle routes are shown on Map T-1.
FIRST/LAST MILE CONNECTIONS
Many people live or work within a mile from a transit station or, bus stop; however,
distance, perception of safety, and inconvenience may deter them from using transit,
so the entire trip is made by single-occupant vehicle simply for lack of convenience
of a small but crucial segment of the trip. Currently, the Palo Alto shuttle, biking, and
walking are the best first/last mile option for most of Palo Alto. Future improvements
should focus on making walking, bicycling, shuttle service, and ridesharing more
efficient, comfortable and safe.
Visual simulation of BRT operating on El Camino Real Source: VTA
PALO ALTO COMPREHENSIVE PLAN
TRANSPORTATION ELEMENT
T-8 REVISED COUNCIL DRAFT – MAY 1, 2017
BIKING
Palo Alto dedicated its formal bikeway system—one of the nation’s first—in 1972.
Bikeways have since become commonplace, and considerable progress has been
made in overcoming barriers to bicycle travel in and around Palo Alto. Palo Alto’s
bikeway network consists of on-road bicycle lanes, bicycle boulevards and bicycle
routes, off-roadway shared-use paths and bridges, and bicycle parking facilities.
Fourteen underpasses and bridges span barriers such as freeways, creeks, and
railroad tracks. Map T-3 shows the existing and planned bikeway network in Palo
Alto. Palo Alto is in a position to build on the existing network, significantly increasing
its proportion of travel by bicycle and is actively pursuing an expanded bike share
program.
The Palo Alto Bicycle + Pedestrian Transportation Plan, adopted in 2012 (BPTP
2012), contains a policy framework, design guidance, and specific recommendations
to increase walking and biking rates over the next decade and beyond. BPTP 2012
encourages planning, construction, and maintenance of complete streets that are
safe and accessible to all modes and people of all ages and abilities.
WALKING
Mode share data indicate that walking accounts for more trips than public transit in
Palo Alto each day, yet is an often overlooked means of transportation. As shown on
Map T-4, Palo Alto's pedestrians are generally well served by current facilities and will
benefit from the attention given to street trees, walkable neighborhoods, and
pedestrian- oriented design. The most needed improvements are to fill in the gaps in
the sidewalk system, make intersection crossings “friendlier,” and overcome barriers
to northeast-southwest travel.
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PALO ALTO COMPREHENSIVE PLAN
TRANSPORTATION
Source: City of Palo Alto, 2012.
MAP T-4
EXISTING PEDESTRIAN FACILITIES
Downtown Inset
Existing Facilities and Programs | 3-5
Alta Planning + Design
Chapter 3
Map 3-2: Existing Pedestrian Conditions
Existing Facilities and Programs | 3-5
Alta Planning + Design
Chapter 3
Map 3-2: Existing Pedestrian Conditions
Existing Facilities and Programs | 3-5
Alta Planning + Design
Chapter 3
Map 3-2: Existing Pedestrian Conditions
PALO ALTO COMPREHENSIVE PLAN
TRANSPORTATION ELEMENT
REVISED COUNCIL DRAFT – MAY 1, 2017 T-11
STREETS
All modes of transportation in Palo Alto depend to some degree on the street
network. The City’s street network has remained essentially unchanged since the
1960s, except for projects along the Sand Hill Road corridor.
STREET CLASSIFICATIONS
Palo Alto’s streets are categorized according to purpose, design and the volume of
traffic they carry. This street hierarchy is defined below and is illustrated on Map T-5.
Improvements to road surfaces, curbs, crossings, signage, landscaping, and sight
lines must make streets safer for vehicles, but must consider the needs and safety of
pedestrians and cyclists as well.
PALO ALTO’S STREET HIERARCHY
Freeway: Major roadway with controlled access; devoted exclusively to
traffic movement, mainly of a through or regional nature.
Expressway: Major roadway with limited access to adjacent properties;
devoted almost exclusively to traffic movement, mainly serving through-
traffic.
Arterial: Major roadway mainly serving through-traffic; takes traffic to and
from expressways and freeways; provides access to adjacent properties.
Residential Arterial: Major roadway mainly serving through-traffic; takes
traffic to and from express- ways and freeways; provides access to adjacent
properties, most of which are residential properties located on both sides of
the roadway with direct frontages and driveways on that roadway.
Collector: Roadway that collects and distributes local traffic to and from
arterial streets, and provides access to adjacent properties.
Local: Minor roadway that provides access to adjacent properties only.
PALO ALTO COMPREHENSIVE PLAN
TRANSPORTATION ELEMENT
T-12 REVISED COUNCIL DRAFT – MAY 1, 2017
ROADWAY AND INTERSECTION IMPROVEMENTS
Efficient traffic circulation on major streets is a priority in Palo Alto, as is minimizing
the diversion of through-traffic onto local residential streets. Intersections are the
most constricted points on the network and tend to see the highest levels of
congestion during the peak morning and afternoon commute periods. For that
purpose, several key intersections and roadways segments, as shown on Map T-6,
have been identified for monitoring. A challenge is to balance the free flow of traffic
with the safety of pedestrians and cyclists of all abilities, as well as with residents’
desire to maintain low traffic speeds on residential arterials.
Most future improvements will be made within existing rights-of-way and will
provide for traffic calming or relatively small increases in roadway capacity by adding
turn lanes or making other intersection adjustments. Other, specific local and
regional transportation investments envisioned are:
Full grade separations for automobiles, pedestrians, and bicyclists at Caltrain
crossings,
Retrofit/improvements to existing grade separated Caltrain crossings for
pedestrians and bicyclists at California Avenue and University Avenue,
Construction of new pedestrian and bicycle grade separated crossing of Caltrain
in South Palo Alto and in North Palo Alto,
Pedestrian and bicycle improvements derived from the 2012 Bicycle and
Pedestrian Plan as amended,
The US 101/Adobe Creek bicycle and pedestrian bridge,
El Camino Real intersection and pedestrian safety/streetscape improvements,
Downtown mobility and safety improvements,
Geng Road extension to Laura Lane,
Middlefield Road corridor improvements.
Other agencies, including Santa Clara County, VTA, and Caltrans, are responsible for
other major roadway projects that will directly affect Palo Alto streets, but are not
under the jurisdiction of the City. Specifically:
The County will implement elements of Expressway Plan 2040 in or near Palo
Alto, including widening Oregon-Page Mill with HOV lanes and a
bicycle/pedestrian trail between I-280 and Foothill Expressway, intersection
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PR EL I MI N A R Y D RA F T MA P T -5R O A D W A Y N E T W O R K
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PALO ALTO COMPREHENSIVE PLAN
TRANSPORTATION ELEMENT
T-14 REVISED COUNCIL DRAFT – MAY 1, 2017
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MA P T - 6
M O N I T O R E D I N T E R S E C T I O N S
Source: City of Palo Alto, 2016; PlaceWorks, 2016.Park/Open Space
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1. Middlefield/University2. Middlefield/Embarcadero3. Middlefield/Oregon (CMP)4. Middlefield/Colorado5. Middlefield/Charleston6. Middlefield/San Antonio (CMP)7. El Camino Real/Alma/Sand Hill (CMP)8. El Camino Real/University/Palm9. El Camino Real/Embarcadero (CMP)10. El Camino Real/Page Mill (CMP)11. El Camino Real/Arastradero/Charleston (CMP)12. El Camino Real/San Antonio (CMP) (Mountain View)13. Santa Cruz/Sand Hill Road (Menlo Park)14. Foothill/Junipero Serra/Page Mill (CMP)15. Foothill/Arastradero (CMP)16. Alma/Charleston17. Arboretum/Quarry18. San Antonio/Charleston(CMP)19. Embarcadero/East Bayshore20. University/Woodland (East Palo Alto)
Palo Alto Monitored Intersections
(CMP) denotes Santa Clara County VTA Congestion Management Plan intersection.
PALO ALTO COMPREHENSIVE PLAN
TRANSPORTATION ELEMENT
T-16 REVISED COUNCIL DRAFT – MAY 1, 2017
improvements along Oregon-Page Mill between Porter and Hansen and at El
Camino Real, reconfiguration of the interchange at I-280/Oregon-Page Mill
Road, and an ITS/signal system Countywide,
US 101 southbound improvements from San Antonio Road and Rengstorff
Avenue.
These investments would be complemented by local and regional investments in
transit and transportation demand management, as well as parking supply and
parking management.
LEVEL OF SERVICE AND VEHICLE MILES TRAVELED
Motor vehicle level of service (LOS) is a way of measuring traffic congestion based
on average control delay per vehicle, and in some analyses, based on the ratio of the
volume of traffic to the capacity of the road. LOS A is a free-flowing condition for cars
and LOS F is an extreme congestion condition, with traffic volumes at or over
capacity. LOS definitions for signalized intersections are shown in Table T-1. Policies
in the Element ensure that the City will continue to use vehicular LOS at local
intersections when evaluating development applications, including a project’s
potential contribution to cumulative LOS.
TABLE T-1 SIGNALIZED INTERSECTION LOS
DEFINITIONS BASED ON AVERAGE DELAY
LOS
Average Control Delay
Per Vehicle (Seconds)
A 10.0 or less
B 10.1 to 20.0
C 20.1 to 35.0
D 35.1 to 55.0
E 55.1 to 80.0
F Greater than 80.0
Source: Transportation Research Board, 2000 Highway Capacity Manual.
Washington, D.C. 2000.
PALO ALTO COMPREHENSIVE PLAN
TRANSPORTATION ELEMENT
REVISED COUNCIL DRAFT – MAY 1, 2017 T-17
VEHICLE MILES TRAVELED
Transportation planning analyses used by cities to describe traffic and roadway and
intersection operation, both for infrastructure planning and for new development
projects, are evolving away from the traditional Vehicle Level of Service (LOS) metric
towards a multi-modal perspective based on Vehicle Miles Traveled (VMT). California
Senate Bill 743, passed in 2013, requires impacts from new development on
transportation network performance to be viewed through a filter that promotes the
reduction of greenhouse gas emissions, the development of multi-modal
transportation networks, and a diversity of land uses. This Bill will shift the State away
from LOS as the metric for evaluating transportation impacts under the California
Environmental Quality Act (CEQA) and towards use of vehicle miles travelled (VMT)
or VMT per capita. This shift recognizes that prioritizing the free flow of cars over any
other roadway user contradicts State goals to reduce GHGs.
While LOS describes local-level impacts at a specific location, VMT describes
network-wide impacts by measuring the number of miles traveled by motor vehicles
within an area. VMT per capita divides the total amount of VMT by the population
living and working in a community. Together, these measures can inform efforts to
reduce commute lengths and enhance the availability of alternative transportation
options.
Multi-modal level of service (MMLOS) is another analytical approach endorsed by
policies in this Element, and applies the concept of LOS to all modes of travel,
including transit, bikes, and pedestrians as well as cars and trucks. Within Santa Clara
County, VTA is developing guidelines for multi-modal transportation planning to
include in all transportation studies, and the City of Palo Alto will have an
opportunity to participate in this effort. One possible outcome could be the adoption
of metrics for safety, convenience, and delay for transit, bicycles, and pedestrians
similar to the LOS standards the City has adopted for motor vehicles.
RAIL CORRIDOR
Palo Alto is bisected by the Caltrain rail corridor, which provides important
connections to the wider Bay Area; however, it also creates a significant barrier to
local connectivity and circulation. Policies in this Element address these issues as well
as safety and desired service expansions to better serve the California Avenue
Caltrain station.
PALO ALTO COMPREHENSIVE PLAN
TRANSPORTATION ELEMENT
T-18 REVISED COUNCIL DRAFT – MAY 1, 2017
To enhance local connectivity, improve pedestrian and bicycle circulation, and
increase safety, the City of Palo Alto is also committed to pursuing grade separation
for pedestrians, bicyclists, and automobiles at Caltrain crossings within the City and is
considering conceptual grade separation alternatives. Recent studies have focused
on three existing at-grade crossings at West Charleston Road, Meadow Drive, and
Churchill Avenue; however there is significant interest in analyzing and pursuing
grade separations at Alma Street as well, in addition to possible establishment of
“quiet zones” for the near term.
NEIGHBORHOOD IMPACTS
Most Palo Alto streets are bordered by residential land uses. Citizens’ concerns
reflect chronic problems like speeding, regional traffic on local streets, and too much
motor vehicle traffic. The City has designated some streets as residential arterials to
recognize that they carry large volumes of through-traffic but also have residential
uses on both sides of the street. The objective is to address the desires of residents
of these streets who would like to have slower speeds, safer conditions for bicycles
and pedestrians, and aesthetic improvements. This must be done economically and
without appreciably reducing traffic capacity or diverting traffic onto other local
neighborhood streets.
Additionally, to address community concerns, the City has developed a Traffic
Intrusion on Residential Environments (TIRE) methodology that estimates resident
perception of traffic impacts based on anticipated average daily traffic growth.
Although not required under the California Environmental Quality Act or pursuant to
VTA guidelines, the City of Palo Alto uses the TIRE index to measure the impact of
traffic on residents along a street.
Policies in this Element support traffic calming, which refers to projects that make
permanent, physical changes to streets to slow traffic and/or reduce volumes, thus
improving their safety and addressing residents’ concerns. Traffic calming measures
can reduce speeds and return some through-traffic from local streets and collector
streets to nearby arterials, something that may be of increased importance given the
advent of technology that helps drivers navigate local streets to avoid congestion.
Traffic calming also includes education and enforcement measures that promote
changes in driver behavior. Some examples of traffic calming measures include:
Curb and Sidewalk Design. In many of the areas of Palo Alto built since World
War II, an integral curb and sidewalk design was used, resulting in sidewalks
The Traffic Infusion on Residential
Environment (TIRE) index is a measure of
the effect of traffic on the safety and
comfort of human activities, such as
walking, cycling, and playing on or near a
street and on the freedom to maneuver
vehicles in and out of residential
driveways. The TIRE index scale ranges
from 0 to 5 depending on daily traffic
volume. An index of 0 represents the least
infusion of traffic and 5 the greatest, and
thereby, the poorest residential
environment.
PALO ALTO COMPREHENSIVE PLAN
TRANSPORTATION ELEMENT
REVISED COUNCIL DRAFT – MAY 1, 2017 T-19
immediately next to traffic lanes. Adding planting pockets and street trees would
promote pedestrian use and also provide visual cues to drivers to reduce
speeds. Curb extensions at intersections and crosswalks can also slow traffic
speeds.
Reducing and Narrowing Lanes. In commercial areas, it may be feasible to
reduce the number of lanes for through-traffic without losing too much traffic
handling capacity. In these areas, curb lanes are often not very useful for
through-traffic since they may be blocked or slowed by cars turning into and out
of driveways and parking spaces. In other areas, narrowing the travel lanes is a
technique that can be used to reduce motor vehicle speeds.
Traffic Circles. A traffic circle is a raised island in the center of an intersection
that helps reduce speeding by forcing drivers to slow. Traffic circles have been
shown to reduce collisions and are considered more bicycle-friendly than
traditional two- or four-way stops controls. Because they don’t require stops,
traffic circles also reduce local air and noise pollution from stop–and-go traffic,
and offer opportunities for added landscaping and tree planting. Traffic circles
are already used in Palo Alto’s residential neighborhoods, and the 2012 Bicycle
+ Pedestrian Transportation Plan calls for greater use of traffic circles,
particularly along bicycle boulevards.
PARKING
Effectively managing parking supply and demand can reduce traffic congestion,
protect the livability of residential neighborhoods, and support local businesses.
The parking-related policies in this plan articulate a phased approach. In the near-
term, the focus will be on conducting needs assessments, which establish a baseline
for adequate parking in each of the city's commercial centers and employment
districts under current conditions, and creating parking management strategies,
which optimize the use of existing parking spaces. In the mid- to long-term, as it
becomes easier and more convenient to walk, bike, rideshare and use transit, and as
the effectiveness of parking management programs can be measured, the focus will
shift to recalibrating parking supply. Bridging between these two phases will require
identifying performance standards for transit, walking, ridesharing and bicycling that
represent the thresholds at which point mechanisms to phase in updated parking
requirements and reduce space allocated to parking over time should be considered.
PALO ALTO COMPREHENSIVE PLAN
TRANSPORTATION ELEMENT
T-20 REVISED COUNCIL DRAFT – MAY 1, 2017
Parking management can be done in a number of ways, including optimizing use of
existing spaces and incentivizing use of alternatives to the automobile. Technology is
central to optimizing the use of existing spaces, and shared parking arrangements
that allow different users to use the same spaces at alternate times can also
optimize the use of existing spaces. Improving transit service, providing safe,
convenient bicycle parking and enhancing the pedestrian realm can incentivize the
use of transportation modes that don't require vehicle parking, while charging for
parking makes it more likely that people will carpool, take transit, walk or bike.
The City has already begun to pilot new programs and gauge the effectiveness of
parking management strategies in coordination with other transportation demand
management initiatives. This plan seeks to set the stage for continued innovation
and experimentation in both the public and private sectors to develop effective
solutions. Over time, carefully managing parking supply can significantly reduce the
number of parking spaces needed, moderate traffic congestion, reduce the costs of
providing parking, encourage transit and sustainable transportation choices and
support Palo Alto’s goals for livable neighborhoods.
Policies also support increasing the number of safe, attractive, and well-designed
bicycle parking spaces in Palo Alto, as well as bike share hubs and bike stations at
Caltrain stations. Priority areas of the city for enhanced bike parking include heavily
travelled mixed-use areas, commercial centers, employment districts,
recreational/cultural facilities, multi-modal transportation facilities and ride share
stops.
ROAD SAFETY
Traffic safety will continue to be among the City’s top priorities in the future. City
officials, city employees and community members are committed to working
together to build better and safer streets, educate the public on traffic safety, enforce
traffic laws, and adopt policy changes that save lives. The City is undertaking a
comprehensive traffic safety program, and partners with Palo Alto Unified School
District and the Palo Alto Parent Teacher Association (PTA) on a Safe Routes to
School Program that encourages families to walk, bike, take transit and use other
alternatives to driving to school more often and to reduce the risk of collisions for
students.
A new approach to substantially reducing traffic-related fatality rates without
compromising mobility is the Vision Zero Initiative, which is being implemented in
PALO ALTO COMPREHENSIVE PLAN
TRANSPORTATION ELEMENT
REVISED COUNCIL DRAFT – MAY 1, 2017 T-21
cities throughout the US and Europe.. At the core of this approach is the pursuit of
roadway safety for all users.
TRANSIT-DEPENDENT COMMUNITIES
Young people, seniors, people with low incomes, and people with limited mobility
all have special transportation needs. Palo Alto is committed to providing reasonable
accessibility and mobility for all members of the community, including those who
depend on transit because they cannot drive or choose not to.
As the baby boomer generation (i.e., those born between 1946 and 1964) ages,
more and more people will forego driving or become unable to drive. Without
proper access to affordable transit or families, friends, and/or neighbors who can
provide rides, seniors face an increased risk of social and physical isolation. VTA
offers seniors 65 and over a discounted Regional Transit Connection Card. In
addition, Outreach, a non-profit organization that serves seniors and people with
disabilities, offers transportation services in Santa Clara County, including a
subsidized transit pass and subsidized taxi rides. While Outreach provides an
important service to the community, there is a daily cap on the number of rides
offered so all user requests may not be accommodated.
VTA’s paratransit services are also provided by Outreach. Riders may reserve
paratransit trips from one to three days in advance, between 8:00 a.m. and 5:00 p.m.
for service the next day. However, paratransit services are limited to a ¾-mile
corridor around the VTA bus routes and light rail stations. For travel outside of the
service area, customers must arrange a transfer to the paratransit operator.
The policies in this Element support these and other efforts to serve transit
dependent communities and also embrace the principle of universal design to
achieve roadways and sidewalks that can accommodate people of all abilities and all
users, including automobiles, pedestrians, bicyclists. Examples of universal design to
support people with disabilities include placing pedestrian push buttons at
wheelchair level, audible pedestrian crossing systems, sidewalk curb ramps,
including wider ramps for strollers, increasing pedestrian crossing times, sidewalk
widths of six feet or greater, roadway and sidewalk materials that reduce slipping and
add stability, minimizing driveway crossings and obstructions, and avoiding steep
grades and slopes.
Households that don’t own a car are
dependent on transit to reach work,
including evening, nighttime, and
weekend shifts, and to meet other daily
needs. At the same time, in a 2016 survey
of workers in downtown Palo Alto, 40
percent of service workers reported that
they would take transit to work if it was less
expensive. Improving mobility for low-
income residents and workers could mean
both expanding transit and shuttle service
to off-peak hours and supporting
programs to provide free or discounted
transit passes.
PALO ALTO COMPREHENSIVE PLAN
TRANSPORTATION ELEMENT
T-22 REVISED COUNCIL DRAFT – MAY 1, 2017
REGIONAL COLLABORATION
Increasing population and traffic congestion over the past 20 years have required an
increased emphasis on regional solutions to transportation issues. A regional
approach is needed to avoid local solutions that simply shift the problem elsewhere
or produce unintended results. Transportation facilities like Caltrain or the Bayshore
Freeway need to be managed regionally. Palo Alto is actively participating with other
communities and Caltrain on electrification, known as the Peninsula Corridor
Electrification Project (PCEP), which will replace existing diesel trains with electric
ones along the 51-mile Caltrain corridor and enable Caltrain to both increase the
number of trains it runs and run longer trains. While these changes offer benefits to
regional commuters, they will increase delays and congestion at rail crossings until
they are grade separated.
The Santa Clara County VTA Congestion Management Program (CMP) is the venue
for transportation planning in the County and the conduit for most transportation
funding. Palo Alto representatives participate on VTA advisory committees as well as
numerous other Bay Area regional bodies affecting transportation, including the
Metropolitan Transportation Commission (MTC), Association of Bay Area
Governments (ABAG), and the Bay Area Air Quality Management District
(BAAQMD).
High Occupancy Vehicle (HOV) lanes and express lanes are regional traffic
management strategies aimed at reducing congestion on freeways and improving air
quality. HOV lanes are reserved at peak travel times or longer for the exclusive use of
vehicles with a driver and one or more passengers; although motorcycles and some
alternative fuel and transit vehicles may also use the lanes. There are about 174
miles of freeway carpool lanes in Santa Clara County, including 84 miles along US
101 between the Palo Alto and Morgan Hill.
GOALS, POLICIES, AND PROGRAMS
SUSTAINABLE TRANSPORTATION
GOAL T-1 Create a sustainable transportation system, complemented
by a mix of land uses, that emphasizes walking, bicycling,
use of public transportation, and other methods to reduce
greenhouse gas emissions and the use of single occupancy
motor vehicles.
PALO ALTO COMPREHENSIVE PLAN
TRANSPORTATION ELEMENT
REVISED COUNCIL DRAFT – MAY 1, 2017 T-23
REDUCING RELIANCE ON SINGLE-OCCUPANT VEHICLES
Policy T-1.1 Take a comprehensive approach to reducing single-occupant vehicle
trips by involving those who live, work and shop in Palo Alto in
developing strategies that make it easier and more convenient not to
drive.
Policy T-1.2 Collaborate with Palo Alto employers and business owners to develop,
implement and expand comprehensive programs like the
Transportation Management Association (TMA) to reduce single-
occupant vehicle commute trips, including through incentives.
Create a long-term education program to change Program T1.2.1
the travel habits of residents, visitors, shoppers, and
workers by informing them about transportation
alternatives, incentives, and impacts. Work with the
Palo Alto Unified School District and with other
public and private interests, such as the Chamber of
Commerce and Commuter Wallet partners, to
develop and implement this program.
Formalize Transportation Demand Management Program T1.2.2
(TDM) requirements by establishing standards and
guidelines that outline when new development
should be required to prepare and implement a
TDM Plan and the performance standards. Require
regular monitoring/reporting and provide for
enforcement with meaningful penalties for non-
compliance. The ordinance should also:
Establish a list of effective TDM measures that
include transit promotion, prepaid transit
passes, commuter checks, car sharing,
carpooling, parking cash-out, bicycle lockers
and showers, shuttles to Caltrain,, requiring
TMA membership, and education and
outreach to support the use of these modes.
Provide a system for incorporating alternative
measures as new ideas for TDM are
developed.
Transportation Demand Management (TDM)
The term Transportation Demand
Management (TDM) encompasses a
coordinated set of strategies that are
designed to reduce the use of single
occupancy vehicles, and thereby reduce
both traffic and parking demand. TDM
programs include investments in alternative
transportation improvements; incentives for
local employees to take transit, walk, or bike;
parking management; and marketing. In
Palo Alto, the Transportation Management
Authority (TMA), an independent non-profit
organization that works collaboratively with
the City and the business community, is
responsible for coordinating TDM programs.
Transportation Demand Management
Strategies are also referenced under
Program T-5.2.3.
PALO ALTO COMPREHENSIVE PLAN
TRANSPORTATION ELEMENT
T-24 REVISED COUNCIL DRAFT – MAY 1, 2017
Establish a mechanism to monitor the success
of TDM measures and track the cumulative
reduction of peak period motor vehicle trips.
TDM measures should achieve the following
reduction in peak period motor vehicle trips,
with a focus on single-occupant vehicle trips.
Reductions should be based on the rates
included in the Institute of Transportation
Engineers’ Trip Generation Manual for the
appropriate land use category:
- 45 percent reduction in the Downtown
district
- 35 percent reduction in the California
Avenue area
- 30 percent reduction in the Stanford
Research Park
- 30 percent reduction in the El Camino
Real Corridor
- 20 percent reduction in other areas of the
city
Require new development projects to pay a
Transportation Impact Fee which will be used
to offset or reduce impacts to congestion
citywide to the extent feasible through transit
services, shuttles, similar public services,
bicycle lanes, and other capital improvements
that enhance multimodal travel.
Evaluate the performance of pilot programs Program T1.2.3
implemented by the Palo Alto Transportation
Management Association and pursue expansion
from Downtown to California Avenue and other
areas of the city when appropriate.
Site City facilities near high-capacity transit and Program T1.2.4
revise existing regulations, policies, and programs
to encourage telecommuting, satellite office
concepts, and work-at-home options.
PALO ALTO COMPREHENSIVE PLAN
TRANSPORTATION ELEMENT
REVISED COUNCIL DRAFT – MAY 1, 2017 T-25
REDUCING GREENHOUSE GAS EMISSIONS
Policy T-1.3 Reduce GHG and pollutant emissions associated with transportation
by reducing vehicle miles traveled and per-mile emissions through
increasing transit options and through the use of zero-emission
vehicle technologies to meet City and State goals for GHG reductions
by 2030.
Develop an electric vehicle promotion program that Program T1.3.1
identifies policy and technical issues, barriers and
opportunities to the expansion of electric vehicles.
Use low-emission vehicles for the Palo Alto Free Program T1.3.2
Shuttle and work with transit providers, including
SamTrans and VTA, to encourage the adoption of
electric, fuel cell or other zero emission vehicles.
Also work with private bus and shuttle providers,
delivery companies, and ride services.
Policy T-1.4 Ensure that electric vehicle charging infrastructure, including
infrastructure for charging e-bikes, is available citywide.
Update the Zoning Code to ensure compatibility Program T1.4.1
with the electric vehicle infrastructure requirements.
Periodically review requirements for electric and Program T1.4.2
plug-in vehicle infrastructure in new construction.
Consider and periodically review requirements for
electric and plug-in infrastructure for remodels.
Consider costs to the City, including identifying
payment options.
INCREASING TRANSIT USE
Policy T-1.5 Encourage innovation and expanded transit access to regional
destinations, multi-modal transit stations, employment centers and
commercial centers, including those within Palo Alto through the use
of efficient public and/or private transit options such as rideshare
services, on-demand local shuttles, and other first/last mile
connections.
PALO ALTO COMPREHENSIVE PLAN
TRANSPORTATION ELEMENT
T-26 REVISED COUNCIL DRAFT – MAY 1, 2017
Collaborate with transit providers, including Program T1.5.1
Caltrain, bus operators and rideshare companies, to
develop first/last mile connection strategies that
boost the use of transit and shuttle service for local
errands and commuting.
Continue to work with Caltrain, Amtrak, and public Program T1.5.2
bus operators to expand bicycle storage on public
transit vehicles and at transit hubs during both peak
and off-peak hours.
Policy T-1.6 Advocate for transit providers to coordinate train, bus, and shuttle
schedules at multi-modal transit stations, and other transit information
centers, to enable efficient transfer among public transit modes.
Policy T-1.7 Work to ensure public and private school commute patterns are
accommodated in the local transit system, including through schedule
and route coordination.
Policy T-1.8 Continue to encourage the provision of amenities such as seating,
lighting, and signage, including real-time arrival information, at bus
and shuttle stops and train stations to increase rider comfort, safety,
and convenience.
ENHANCING RAIL AND BUS SERVICE
Policy T-1.9 Support Caltrain modernization and electrification, capacity and
service enhancements and extension to Downtown San Francisco.
Policy T-1.10 Encourage continued enhancement of the Caltrain stations as
important transportation nodes for the city.
Collaborate with Stanford University, VTA, Caltrain Program T1.10.1
and other agencies to pursue improvements to the
Palo Alto Transit Center area aimed at enhancing
the pedestrian experience and improving circulation
and access for all modes, including direct access to
El Camino Real for transit vehicles.
PALO ALTO COMPREHENSIVE PLAN
TRANSPORTATION ELEMENT
REVISED COUNCIL DRAFT – MAY 1, 2017 T-27
In collaboration with Caltrain and Stanford Research Program T1.10.2
Park, pursue expansion of service to the California
Avenue Caltrain Station and creation of an
enhanced transit center at the Station, including
connections to VTA bus service, the Palo Alto Free
Shuttle, the Marguerite, and other private shuttles
serving the Research Park.
Policy T-1.11 Collaborate with transit agencies in planning and implementing
convenient, efficient, coordinated and effective bus service in Palo Alto
that addresses the needs of all segments of our population.
Strongly recommend that VTA maintain existing Program T1.11.1
service and coverage levels in Palo Alto.
Work with VTA to expand VTA express bus service Program T1.11.2
routes to serve the Stanford Research Park,
California Avenue, Stanford University, and
Downtown.
Study the feasibility of, and if warranted provide, Program T1.11.3
traffic signal prioritization for buses at Palo Alto
intersections, focusing first on regional transit
routes. Also, advocate for bus service
improvements on El Camino Real such as queue
jump lanes and curbside platforms.
SHUTTLE SERVICE, RIDESHARING AND FIRST/LAST MILE CONNECTIONS
Policy T-1.12 Encourage services that complement and enhance the transportation
options available to help Palo Alto residents and employees make
first/last mile connections and travel within the city for daily needs
without using a single occupancy vehicle, including shuttle, taxi and
ridesharing services.
Investigate a pilot program to subsidize a taxi, Program T1.12.1
rideshare, or transit program for Palo Altans to get
to/from downtown, including offering education
and incentives to encourage users.
PALO ALTO COMPREHENSIVE PLAN
TRANSPORTATION ELEMENT
T-28 REVISED COUNCIL DRAFT – MAY 1, 2017
Policy T-1.13 Continue the Palo Alto Free Shuttle Program and work with partners to
enhance service by increasing frequency and prioritizing destinations
of value to the community, including health centers, parks, schools,
senior centers, and shopping areas and other places where residents
gather.
Evaluate theshuttle system periodically in Program T1.13.1
collaboration with community members, people
with special needs, and PAUSD to:
Evaluate current routes and ridership;
Identify potential service improvements,
including new or modified routes; expanded
schedules that accommodate daytime,
evening, and weekend demand; facilitating
transit connections, and improvements to the
safety and appearance of shuttle stops;
Explore partnerships with other services that
could complement and supplement the Palo
Alto Shuttle;
Develop clear and engaging materials to
explain and promote shuttle use with the
purpose of reducing barriers to use; and
Establish a schedule for regular evaluation and
reporting to optimize shuttle system use and
effectiveness.
Policy T-1.14 Encourage employers to develop shared shuttle services to connect
employment areas with the multi-modal transit stations and City
amenities, and to offer employees education and information on how
to use shuttles.
BICYCLING AND WALKING
Policy T-1.15 Promote bicycle use as an alternative way to get to work, school,
shopping, recreational facilities and transit stops.
Continue regular surveys of bicycle use across the Program T1.15.1
city, by collecting bicycle counts on important and
potential bicycle corridors.
PALO ALTO COMPREHENSIVE PLAN
TRANSPORTATION ELEMENT
REVISED COUNCIL DRAFT – MAY 1, 2017 T-29
Consider marketing strategies, such as a recurring Program T1.15.2
Palo Alto Open Streets program of events
potentially in coordination with local business
groups, which would include street closures and
programming.
Encourage private schools to develop Walk and Roll Program T1.15.3
Maps as part of Transportation Demand
Management strategies to reduce vehicle trips.
Participate in local and regional encouragement Program T1.15.4
events such as Palo Alto Walks and Rolls, Bike to
Work Day, and Bike Palo Alto! that encourage a
culture of bicycling and walking as alternatives to
single occupant vehicle trips.
Policy T-1.16 Require new office, commercial, and multi-family residential
developments to provide improvements that improve bicycle and
pedestrian connectivity as called for in the 2012 Bicycle + Pedestrian
Transportation Plan.
Policy T-1.17 Increase cooperation with surrounding communities and other
agencies to establish and maintain off-roadway bicycle and pedestrian
paths and trails that are integrated with creek, utility, railroad rights-of-
way and green spaces in a manner that helps enhance and define the
community and avoids environmental impacts.
Policy T-1.18 Provide facilities that encourage and support bicycling and walking.
Adjust the street evaluation criteria of the City's Program T1.18.1
Pavement Management Program to ensure that
areas of the road used by bicyclists are maintained
at the same standards as, or at standards higher
than, areas used by motor vehicles. Include bicycle
and e-bike detection in intersection upgrades.
Prioritize investments for enhanced pedestrian Program T1.18.2
access and bicycle use within Palo Alto and to/from
surrounding communities, including by
incorporating improvements from related City
plans, for example the 2012 Bicycle + Pedestrian
Transportation Plan and the Parks, Trails & Open
PALO ALTO COMPREHENSIVE PLAN
TRANSPORTATION ELEMENT
T-30 REVISED COUNCIL DRAFT – MAY 1, 2017
Space Master Plan, as amended, into the Capital
Improvements Program.
Increase the number of east-west pedestrian and Program T1.18.3
bicycle crossings across Alma Street and the
Caltrain corridor, particularly south of Oregon
Expressway.
Encourage the use of bike sharing, and the Program T1.18.4
provision of required infrastructure throughout Palo
Alto, especially at transit stations and stops, job
centers, community centers, and other destinations.
Improve amenities such as seating, lighting, bicycle Program T1.18.5
parking, street trees, public art, and interpretive
stations along bicycle and pedestrian paths and in
City parks to encourage walking and cycling and
enhance the feeling of safety.
Policy T-1.19 Regularly maintain off-roadway bicycle and pedestrian paths, including
sweeping, weed abatement, and surface maintenance.
Policy T-1.20 Maintain pedestrian- and bicycle-only use of alleyways Downtown and
in the California Avenue area where appropriate to provide
connectivity between businesses and parking and transit stops, and
consider public art in the alleyways as a way to encourage walking.
MONITORING PROGRESS
Policy T-1.21 Continue to measure the effectiveness of the City’s transportation
network to make better decisions on transportation issues.
Collect, analyze and report transportation data Program T1.21.1
through surveys and other methods on a regular
basis. Track progress on build-out of the 2012
Bicycle + Pedestrian Transportation Plan network.
Policy T-1.22 Monitor VMT per capita and citywide greenhouse gas (GHG)
emissions from mobile sources as a measure of progress toward the
City’s goal of reducing GHG 80% below 1990 levels by 2030.
PALO ALTO COMPREHENSIVE PLAN
TRANSPORTATION ELEMENT
REVISED COUNCIL DRAFT – MAY 1, 2017 T-31
Policy T-1.23 Monitor and publicly report on the level of service at critical
intersections (as shown on Map T-5) on a regular basis and consider
additional intersections to add to this list to monitor the effectiveness
of the City's growth management policies. Also monitor multi-modal
level of service for arterials and residential arterials.
FUNDING IMPROVEMENTS
Policy T-1.24 Evaluate transportation funding measures periodically for ongoing
transportation improvements that will help mitigate the impacts of
future development and protect residents’ quality of life. When other
sources are unavailable, continue to fund improvements, operations
and maintenance through the general fund.
As part of the effort to reduce traffic congestion, Program T1.24.1
regularly evaluate the City’s current Transportation
Impact Fee and modify as needed to implement
transportation projects, and consider new fees that
new development projects must pay to the City for
use in reducing roadway congestion impacts to the
extent feasible through the provision of transit
services, shuttles, carpool/rideshare incentives,
bicycle lanes, and similar programs and capital
improvements.
Policy T-1.25 Collaborate with adjacent communities to ensure that Palo Alto and its
immediate neighbors receive their fair share of regional transportation
funds, proportional to the need and demand for transportation
improvements within these communities to address region-wide
transportation issues.
In collaboration with regional agencies and Program T1.25.1
neighboring jurisdictions, identify and pursue
funding for rail corridor improvements and grade
separation.
Policy T-1.26 Collaborate with public interest groups as well as federal, State, and
local governments to study and advocate for transportation regulatory
changes, such as an increase in the gasoline tax.
PALO ALTO COMPREHENSIVE PLAN
TRANSPORTATION ELEMENT
T-32 REVISED COUNCIL DRAFT – MAY 1, 2017
TRAFFIC DELAY AND CONGESTION
GOAL T-2 Decrease delay, congestion, and vehicle miles travelled
with a priority on our worst intersections and our peak
commute times, including school traffic.
Policy T-2.1 Working with congestion management authorities including the Valley
Transportation Authority (VTA) and the City/County Association of
Governments of San Mateo County (C/CAG), implement traffic
management strategies and technologies, such as signal coordination,
centralized traffic control, and real-time travel information, to reduce
traffic congestion in and around Palo Alto.
Implement computerized traffic management Program T2.1.1
systems to improve traffic flow when feasible.
Implement a program to monitor, coordinate, and Program T2.1.2
optimize traffic signal timing a minimum of every
two years along arterial and residential arterial
streets.
Policy T-2.2 As part of the effort to reduce traffic congestion, seek ongoing funding
and engage employers to operate and expand Transportation
Management Associations (TMAs) to address transportation and
parking issues as appropriate in the City’s employment districts.
Work in partnership with the Palo Alto TMA and Program T2.2.1
Stanford University to aggregate data and realize
measurable reductions in single-occupant vehicle
commuting to and from Downtown and in the
Stanford Research Park.
Policy T-2.3 Use motor vehicle level of service (LOS) at signalized intersections to
evaluate the potential impact of proposed projects, including
contributions to cumulative congestion. Use signal warrants and other
metrics to evaluate impacts at unsignalized intersections..
PALO ALTO COMPREHENSIVE PLAN
TRANSPORTATION ELEMENT
REVISED COUNCIL DRAFT – MAY 1, 2017 T-33
When adopting new CEQA significance thresholds Program T2.3.1
for compliance with SB 743 (2013), also adopt
desired standards for multi-modal levels of service
(MMLOS), which includes motor vehicle LOS, at
signalized intersections for use in evaluating the
consistency of a proposed project with the
Comprehensive Plan.
Policy T-2.4 Consistent with the principles of Complete Streets adopted by the City,
work to achieve and maintain acceptable levels of service for transit
vehicles, bicyclists, pedestrians and automobiles on roads in Palo Alto.
Revise protocols for reviewing office, commercial, Program T2.4.1
and multi-family residential development proposals
to evaluate multi-modal level of service and identify
gaps in the low stress bicycle and pedestrian
network.
SCHOOLS AND CHILDCARE FACILITY CONGESTION
Policy T-2.5 Encourage the location of childcare facilities near major employment
hubs to reduce traffic congestion associated with child pick-up and
drop-off.
Policy T-2.6 Work with PAUSD to ensure that decisions regarding school
assignments are analyzed to reduce peak period motor vehicle trips to
and from school sites.
Policy T-2.7 Work with the PAUSD to resolve traffic congestion issues associated
with student drop-off and pick-up. Address pedestrian and bicycle
access, circulation, and related issues such as coordinating bell
schedules on City rights-of-way adjacent to schools and on PAUSD
property.
PALO ALTO COMPREHENSIVE PLAN
TRANSPORTATION ELEMENT
T-34 REVISED COUNCIL DRAFT – MAY 1, 2017
STREETS
GOAL T-3 Maintain an efficient roadway network for all users.
EFFICIENT CIRCULATION
Policy T-3.1 Maintain a hierarchy of streets that includes freeways, expressways,
arterials, residential arterials, collector streets, and local streets,
balancing the needs of all users in a safe and appropriate manner.
Policy T-3.2 Enhance connections to, from and between parks, community centers,
recreation facilities, libraries and schools for all users.
Policy T-3.3 Avoid major increases in single occupant vehicle capacity when
constructing or modifying roadways unless needed to remedy severe
congestion or critical neighborhood traffic problems. Where capacity is
increased, balance the needs of motor vehicles with those of
pedestrians and bicyclists.
Policy T-3.4 Regulate truck movements and large commercial buses in a manner
that balances the efficient movement of trucks and buses while
preserving the residential character of Palo Alto's street system.
STREET DESIGN AND MODIFICATION PROJECTS
Policy T-3.5 When constructing or modifying roadways, plan for use of the
roadway by all users.
Continue to use best practices in roadway design Program T3.5.1
that are consistent with complete streets principles
and the Urban Forest Master Plan, focusing on
bicycle and pedestrian safety and multi-modal uses.
Consider opportunities to incorporate best practices
from the National Association of City Transportation
Officials guidelines for urban streets and bikeways,
tailored to the Palo Alto context.
Establish procedures for considering the effects of Program T3.5.2
street design on emergency vehicle response time.
PALO ALTO COMPREHENSIVE PLAN
TRANSPORTATION ELEMENT
REVISED COUNCIL DRAFT – MAY 1, 2017 T-35
Policy T-3.6 Consider pedestrians, bicyclists, e-bikes, and motorcycles when
designing road surfaces, curbs, crossings, signage, landscaping, and
sight lines.
Policy T-3.7 Encourage pedestrian-friendly design features such as sidewalks, street
trees, on-street parking, gathering spaces, gardens, outdoor furniture,
art, and interesting architectural details.
Policy T-3.8 Add planting pockets with street trees to provide shade, calm traffic
and enhance the pedestrian realm.
Policy T-3.9 Support city-wide sustainability efforts by preserving and enhancing
the tree canopy where feasible within the public right of way,
consistent with the Urban Forest Management Plan, as amended.
Policy T-3.10 Participate in the design and implementation of comprehensive
solutions to traffic problems near Stanford Shopping Center and
Stanford Medical Center.
Support increased public transit, traffic Program T3.10.1
management and parking solutions to ensure safe,
convenient access to and from the Stanford
Shopping Center/ Medical Center area.
Implement and monitor Development Agreement Program T3.10.2
traffic mitigations at Stanford Medical Center.
Provide safe, convenient pedestrian, bicycle, and Program T3.10.3
transit connections between the Stanford Shopping
Center/Medical Center areas and housing along the
Sand Hill Road/Quarry Road corridors to Palo Alto
Transit Center, Downtown Palo Alto, and other
primary destinations.
Pursue extension of Quarry Road for transit, Program T3.10.4
pedestrians and bicyclists to access the Palo Alto
Transit Center from El Camino Real. Also study the
feasibility of another pedestrian and bicycle
underpass of Caltrain at Everett Street.
PALO ALTO COMPREHENSIVE PLAN
TRANSPORTATION ELEMENT
T-36 REVISED COUNCIL DRAFT – MAY 1, 2017
Policy T-3.11 Consider the objectives of the Grand Boulevard Initiative and the
South El Camino Boulevard Design Guidelines when designing
roadway and pedestrian improvements along El Camino Real.
Policy T-3.12 Coordinate roadway improvements with other transportation and
utility infrastructure improvements such as sewer and water.
Policy T-3.13 Work with Caltrans, Santa Clara County and VTA to improve east and
west connections in Palo Alto and maintain a circulation network that
binds the city together in all directions.
Policy T-3.14 Continue to prioritize the safety of school children in street
modification projects that affect school travel routes, including during
construction.
RAIL CORRIDOR
Policy T-3.15 Pursue grade separation of rail crossings along the rail corridor as a
City priority.
Undertake studies and outreach necessary to Program T3.15.1
advance grade separation of Caltrain to become a
“shovel ready” project and strongly advocate for
adequate State, regional, and federal funding for
design and construction of railroad grade
separations.
Conduct a study to evaluate the implications of Program T3.15.2
grade separation on bicycle and pedestrian
circulation.
Policy T-3.16 Keep existing at-grade rail crossings open to motor vehicles,
pedestrians, and bicyclist, consistent with results of a focused
circulation study and a context sensitive alternatives analysis.
Policy T-3.17 Until grade separation is completed, improve existing at-grade rail
crossings to ensure the highest feasible level of safety along the
corridor and provide additional safe, convenient crossings.
Complete a Palo Alto Avenue crossing study to Program T3.17.1
identify potential near-term safety and accessibility
improvements.
PALO ALTO COMPREHENSIVE PLAN
TRANSPORTATION ELEMENT
REVISED COUNCIL DRAFT – MAY 1, 2017 T-37
Work with Caltrain to ensure that the rail tracks are Program T3.17.2
safe and secure with adequate fencing and barriers.
Policy T-3.18 Improve safety and minimize adverse noise, vibrations and visual
impacts of operations in the Caltrain rail corridor on adjoining districts,
public facilities, schools and neighborhoods with or without the
addition of High Speed Rail.
NEIGHBORHOOD IMPACTS
GOAL T-4 Protect local streets that contribute to neighborhood
character and provide a range of local transportation
options.
Policy T-4.1 Keep all neighborhood streets open as a general rule.
Policy T-4.2 Continue to construct traffic calming measures to slow traffic on local
and collector residential streets, and prioritize traffic calming measures
for safety over congestion management.
Identify specific improvements that can be used to Program T4.2.1
discourage drivers from using local, neighborhood
streets to bypass traffic congestion on arterials.
Periodically evaluate residential areas for traffic Program T4.2.2
impacts and use the results of that evaluation to
prioritize traffic calming measures.
Policy T-4.3 Maintain the following roadways as residential arterials, treated with
landscaping, medians, and other visual improvements to distinguish
them as residential streets, in order to improve safety:
Middlefield Road (between San Francisquito Creek and San
Antonio Road)
University Avenue (between San Francisquito Creek and
Middlefield Road)
Embarcadero Road (between Alma Street and West Bayshore
Road)
East and West Charleston Road/Arastradero Road (between
Miranda Avenue and Fabian Way).
PALO ALTO COMPREHENSIVE PLAN
TRANSPORTATION ELEMENT
T-38 REVISED COUNCIL DRAFT – MAY 1, 2017
Use landscaping and other improvements to Program T4.3.1
establish clear “gateways” at the points where the
Oregon Expressway, University Avenue and
Embarcadero Road transition from freeways to
neighborhoods.
Policy T-4.4 Minimize the danger of increased commercial ingress/egress adjacent
to major intersections, and noticeable increases in traffic from new
development in residential neighborhoods, through traffic mitigation
measures.
Policy T-4.5 Require project proponents to employ the Traffic Impact on
Residential Environments (TIRE) methodology to measure potential
street impacts from proposed new development of all types in
residential neighborhoods.
Policy T-4.6 Require new residential development projects to implement best
practices for street design, stormwater management and green
infrastructure.
MOTOR VEHICLE AND BICYCLE PARKING
GOAL T-5 Encourage attractive, convenient, efficient and innovative
parking solutions for all users.
MANAGING PARKING SUPPLY
Policy T-5.1 All new development projects should meet parking demand
generated by the project, without the use of on-street parking,
consistent with the established parking regulations. As demonstrated
parking demand decreases over time, parking requirements for new
construction should decrease.
Evaluate the need to update parking standards in Program T5.1.1
the municipal code, based on local conditions,
different users’ needs and baseline parking need.
Allow the use of parking lifts for Office/R&D and
multi-family housing as appropriate.
Consider reducing parking requirements for retail Program T5.1.2
and restaurant uses as a way to encourage new
businesses and the use of alternative modes..
PALO ALTO COMPREHENSIVE PLAN
TRANSPORTATION ELEMENT
REVISED COUNCIL DRAFT – MAY 1, 2017 T-39
Work with stakeholders in each commercial center Program T5.1.3
and employment district to monitor conditions and
determine the appropriate timing for revisions to
parking requirements.
Study the feasibility of unbundled parking for office, Program T5.1.4
commercial, and multi-family residential
developments (including senior housing
developments) that are well-served by transit and
demonstrated walking and biking connections.
Policy T-5.2 Continue to implement a comprehensive program of parking supply
and demand management strategies citywide to optimize the use of
existing parking spaces.
Use technology to help identify parking availability Program T5.2.1
and make it easy to pay any parking fees.
Study and implement pricing strategies for public Program T5.2.2
parking in commercial districts, taking into
consideration both employee parking demand and
the needs of retailers and customers. Use pricing to
encourage short term parking on street, long term
parking in parking garages, and the use of
alternative modes of transportation. .
Implement Council-adopted recommendations Program T5.2.3
from the parking management study for the
Downtown area, which address the feasibility of
removing color-coded parking zones, and dynamic
pricing and management policies to prioritize short-
term parking spaces closest to the commercial core
for customers, garage parking for employees, and
neighborhood parking for residents.
Policy T-5.3 Work with merchants when designating dedicated employee (long
term) parking areas in public parking lots and garages.
Policy T-5.4 Encourage shared parking where complementary demand timing is
demonstrated in order to optimize parking spaces in commercial
centers and employment districts.
PALO ALTO COMPREHENSIVE PLAN
TRANSPORTATION ELEMENT
T-40 REVISED COUNCIL DRAFT – MAY 1, 2017
Explore incentives to encourage privately initiated Program T5.4.1
shared parking among individual property owners
when developments have excess parking that can
be available for other businesses to use.
Policy T-5.5 Minimize the need for employees to park in and adjacent to
commercial centers, employment districts and schools.
PARKING INFRASTRUCTURE AND DESIGN
Policy T-5.6 Strongly encourage the use of below-grade or structured parking
instead of surface parking for new developments of all types while
minimizing negative impacts including groundwater and landscaping
where feasible.
Policy T-5.7 Require new or redesigned parking lots to optimize pedestrian and
bicycle safety.
Policy T-5.8 Promote vehicle parking areas designed to reduce stormwater runoff,
increase compatibility with street trees and add visual interest to
streets and other public locations. Encourage the use of photovoltaic
panel or tree canopies in parking lots or on top of parking structures
to provide cover, consistent with the Urban Forest Master Plan.
Study the feasibility of retrofitting City-owned Program T5.8.1
surface parking lots to implement best
management practices for stormwater management
and urban heat island mitigation, including green
infrastructure, permeable pavement and reflective
surfaces.
Identify incentives to encourage the retrofit of Program T5.8.2
privately owned surface parking areas to
incorporate best management practices for
stormwater management and urban heat island
mitigation as well as incentives for the provision of
publicly accessible bicycle parking in privately
owned lots.
Update City requirements regarding trees and other Program T5.8.3
landscaping that capture and filter stormwater
PALO ALTO COMPREHENSIVE PLAN
TRANSPORTATION ELEMENT
REVISED COUNCIL DRAFT – MAY 1, 2017 T-41
within surface parking lots to take advantage of new
technology.
Policy T-5.9 Promote safety for pedestrians in City-owned parking lots by adopting
standards for landscaping, signage, walkways and lighting that reduce
crime and ensure a safe and orderly flow of traffic.
Policy T-5.10 Encourage the use of adaptive design strategies in new parking
facilities in order to facilitate reuse in the future if and when conditions
warrant.
RESIDENTIAL PARKING
Policy T-5.11 Protect residential areas from parking impacts of nearby businesses.
Coordinate with neighborhood groups to evaluate Program T5.11.1
the need for a residential parking permit program
in areas without existing programs.
BICYCLE PARKING
Policy T-5.12 To promote bicycle use, increase the number of safe, attractive and
well-designed bicycle parking spaces available in the city, including
spots for bicycle trailers, prioritizing heavily travelled areas such as
commercial and retail centers, employment districts,
recreational/cultural facilities, multi-modal transit facilities and ride
share stops for bicycle parking infrastructure.
Work with employers, merchants, schools, and Program T5.12.1
community service providers, to identify ways to
provide more bicycle parking, including e-bike
parking with charging stations, near existing shops,
services and places of employment.
Install secure electronic bike lockers such as the Program T5.12.2
BikeLink system, at high theft locations, including
transit stations and parking garages.
Assess the need to provide additional bicycle Program T5.12.3
parking in City-owned parking lots and rights-of-
way.
PALO ALTO COMPREHENSIVE PLAN
TRANSPORTATION ELEMENT
T-42 REVISED COUNCIL DRAFT – MAY 1, 2017
ROAD SAFETY
GOAL T-6 Provide a safe environment for motorists, pedestrians, and
bicyclists on Palo Alto streets.
Policy T-6.1 Continue to make safety the first priority of citywide transportation
planning. Prioritize pedestrian, bicycle, and automobile safety over
motor vehicle level-of-service at intersections and motor vehicle
parking.
Follow the principles of the safe routes to schools Program T6.1.1
program to implement traffic safety measures that
focus on Safe Routes to work, shopping,
downtown, community services, parks, and schools.
Develop, distribute and aggressively promote maps Program T6.1.2
and apps showing safe routes to work, shopping,
community services, parks and schools within Palo
Alto in collaboration with stakeholders, including
PAUSD, major employers, TMAs, local businesses
and community organizations.
Address pedestrian safety along Alma Street Program T6.1.3
between Embarcadero Road and Lytton Street.
Address pedestrian safety on shared-use paths Program T6.1.4
through the use of signs, pavement markings, and
outreach to users, encouraging them to be safe and
courteous.
Policy T-6.2 Pursue the goal of zero severe injuries and roadway fatalities on Palo
Alto city streets.
Regularly collect severity and location data on Program T6.2.1
roadway collisions for all modes of travel, including
fatalities and severe injuries, and use this data to
make roadway design decisions. In collaboration
with Santa Clara County, develop an up-to-date,
public database for this information.
Policy T-6.3 Continue to work with Caltrain to increase safety at train crossings,
including improving gate technology, and signal coordination.
PALO ALTO COMPREHENSIVE PLAN
TRANSPORTATION ELEMENT
REVISED COUNCIL DRAFT – MAY 1, 2017 T-43
Policy T-6.4 Continue the Safe Routes to School partnership with PAUSD and the
Palo Alto Council of PTAs.
Consider the Adopted School Commute Corridors Program T6.4.1
Network and adopted “Walk and Roll” maps when
reviewing development applications and making
land use and transportation planning decisions.
Incorporate these requirements into City code
when feasible.
Establish standards and procedures for maintaining Program T6.4.2
safe bicycling routes, including signage for warnings
and detours during construction projects.
In collaboration with PAUSD, provide adult crossing Program T6.4.3
guards at school crossings that meet established
warrants.
Policy T-6.5 Support PAUSD adoption of standard Safe Routes to School policies
and regulations that address the five E’s of education, encouragement,
enforcement, engineering, and evaluation.
Policy T-6.6 Use engineering, enforcement, and educational tools to improve traffic
safety on City roadways.
Periodically evaluate safety on roadways and at Program T6.6.1
intersections and enhance conditions through the
use of signal technology and physical changes.
Consider the construction of traffic circles for
improved intersection safety.
Continue to provide educational programs for Program T6.6.2
children and adults, in partnership with community-
based educational organizations, to promote the
safe use of bicycles, including the City-sponsored
bicycle education programs in the public schools
and the bicycle traffic school program for juveniles.
PALO ALTO COMPREHENSIVE PLAN
TRANSPORTATION ELEMENT
T-44 REVISED COUNCIL DRAFT – MAY 1, 2017
Work with PAUSD and employers to promote Program T6.6.3
roadway safety for all users, including motorized
alternatives to cars and bikes such as mopeds and
e-bikes, through educational programs for children
and adults.
Complete a mobility and safety study for downtown Program T6.6.4
Palo Alto, looking at ways to improve circulation
and safety for all modes.
Identify and construct safety improvements for Program T6.6.5
pedestrian underpasses, including on Embarcadero
Road.
Improve pedestrian crossings by creating protected Program T6.6.6
areas and better pedestrian and traffic visibility. Use
a toolbox including bulb outs, small curb radii, high
visibility crosswalks, and landscaping.
Establish a program to educate residents to keep Program T6.6.7
sidewalks clear of parked cars, especially on narrow
local streets in neighborhoods with rolled curbs.
Survey for compliance annually.
Policy T-6.7 Use appropriate technology to monitor and improve circulation safety
throughout the City.
Evaluate the performance of safety improvements Program T6.7.1
and identify methods to encourage alternative
transportation modes.
Policy T-6.8 Vigorously and consistently enforce speed limits and other traffic laws
for both motor vehicle and bicycle traffic.
TRANSIT-DEPENDENT COMMUNITY
GOAL T-7 Provide mobility options that allow people who are transit
dependent to reach their destinations.
Policy T-7.1 Support mobility options for all groups in Palo Alto who require transit
for their transportation.
PALO ALTO COMPREHENSIVE PLAN
TRANSPORTATION ELEMENT
REVISED COUNCIL DRAFT – MAY 1, 2017 T-45
Expand transportation opportunities for transit-Program T7.1.1
dependent riders by supporting discounts for taxi
fares, rideshare services, and transit, by
coordinating transit systems to be shared by
multiple senior housing developments, and by
maintaining a database of volunteer drivers, and
other transit options.
Coordinate with social service agencies and transit Program T7.1.2
agencies to fill gaps in existing transportation routes
and services accessible to transit-dependent riders
no matter their means and design new bus routes
that enable them to access those services.
Pursue expanded evening and night time bus Program T7.1.3
service to enhance mobility for all users during off-
peak times.
Policy T-7.2 Utilize the principles of Universal Design, and local and State design
standards, to guide the planning and implementation of transportation
and parking improvement projects to ensure the needs of community
members with limited mobility, including some seniors and people
with disabilities, are addressed.
Policy T-7.3 Continue to partner with transit providers, including VTA, to support
demand-responsive paratransit service for eligible participants in Palo
Alto and maintain existing paratransit services, particularly where bus
service is discontinued. Emphasize service quality and timeliness when
contracting for paratransit services.
Policy T-7.4 Collaborate with transit and shuttle providers including VTA, AC
Transit, SamTrans, Stanford Marguerite Shuttle, Palo Alto Free Shuttle,
Dumbarton Express Bus Service and Caltrain in the provision of
service that is accessible to seniors and people with disabilities.
Policy T-7.5 Support transit providers in implementing or continuing reduced fare
or no fare voucher systems for selected populations, including seniors
and people with disabilities.
Policy T-7.6 Encourage transit service providers to provide subsidized transit
passes for low income riders and other transit-dependent
communities.
PALO ALTO COMPREHENSIVE PLAN
TRANSPORTATION ELEMENT
T-46 REVISED COUNCIL DRAFT – MAY 1, 2017
REGIONAL COLLABORATION AND COORDINATION
GOAL T-8 Influence the shape and implementation of regional
transportation policies and technologies to reduce traffic
congestion and greenhouse gas emissions.
Policy T-8.1 Engage in regional transportation planning and advocate for specific
transit improvements and investments, such as Caltrain service
enhancements and grade separations, Dumbarton Express service,
enhanced bus service on El Camino Real with queue jumping and
curbside platforms, HOV/HOT lanes, and additional VTA bus service.
Policy T-8.2 Participate in regional planning initiatives for the rail corridor and
provide a strong guiding voice.
Policy T-8.3 Collaborate effectively with and engage in regional partnerships and
solutions with a range of stakeholders, including regional agencies,
neighboring jurisdictions and major employers, on issues of regional
importance such as traffic congestion, reduced reliance on single-
occupant vehicles, and sustainable transportation.
Continue to participate in regional efforts to Program T8.3.1
develop technological solutions that make
alternatives to the automobile more convenient and
thereby contribute to reducing congestion.
Policy T-8.4 Coordinate with local, regional agencies, and Caltrans to support
regional efforts to maintain and improve transportation infrastructure
in Palo Alto, including the Multi-Modal Transit Center.
Policy T-8.5 Support the efforts of the Metropolitan Transportation Commission
(MTC) to coordinate transportation planning and services for the Mid-
Peninsula and the Bay Area that emphasize alternatives to the
automobile.
Policy T-8.6 Advocate for efforts by Caltrans and the Valley Transportation
Authority to reduce congestion and improve traffic flow on existing
freeway facilities consistent with Statewide GHG emissions reduction
initiatives.
PALO ALTO COMPREHENSIVE PLAN
TRANSPORTATION ELEMENT
REVISED COUNCIL DRAFT – MAY 1, 2017 T-47
Advocate for provision of a new southbound Program T8.6.1
entrance ramp to Highway 101 from San Antonio
Road, in conjunction with the closure of the
southbound Charleston Road on-ramp at the
Rengstorff Avenue interchange in Mountain View.
Advocate for improved connectivity to transit to Program T8.6.2
serve workers who live in the South Bay and work
in Palo Alto.
Policy T-8.7 Support the application of emerging freeway information, monitoring,
and control systems that provide non-intrusive driver assistance and
reduce congestion.
Policy T-8.8 Where appropriate, support the conversion of existing traffic lanes to
exclusive bus and high-occupancy vehicle (HOV) lanes or
Express/HOT lanes on freeways and expressways, including the
Dumbarton Bridge, and the continuation of an HOV lane from
Redwood City to San Francisco.
Policy T-8.9 Support State and federal legislation to reduce motor vehicle
emissions, noise, and fuel consumption.
Policy T-8.10 Support plans for intra-county and transbay transit systems that link
Palo Alto to the rest of Santa Clara County and adjoining counties.
Ensure that these systems and enhancements do not adversely impact
the bay.
Work with regional transportation providers, Program T8.10.1
including BART and Caltrain, to improve
connections between Palo Alto and the San
Francisco International Airport and Norman Y.
Mineta San Jose International Airport.
Policy T-8.11 Support regional plans to complete development of the Bay Trail and
Bay-to-Ridge Trail.
Policy T-8.12 Support the development of the Santa Clara County Countywide
Bicycle System, and other regional bicycle plans.
PALO ALTO COMPREHENSIVE PLAN
TRANSPORTATION ELEMENT
T-48 REVISED COUNCIL DRAFT – MAY 1, 2017
Identify and improve bicycle connections to/from Program T8.12.1
neighboring communities in Santa Clara and San
Mateo counties to support local trips that cross city
boundaries. Also advocate for reducing barriers to
bicycling and walking at freeway interchanges,
expressway intersections, and railroad grad
crossings.
LAND USE AND
COMMUNITY DESIGN
REVISED COUNCIL DRAFT – MAY 1, 2017 L-1
3
This revised Council draft element reflects revisions in response to Council direction
received on January 30, 2017, including revisions to improve the organization of the
Element and eliminate redundancies.
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 and services in Palo Alto neighborhoods and districts, 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.
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.
PALO ALTO COMPREHENSIVE PLAN
LAND USE AND COMMUNITY DESIGN ELEMENT
L-2 REVISED COUNCIL DRAFT – MAY 1, 2017
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 and Urban Environment and Safety
Element is 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
NATURAL ENVIRONMENT
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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Source: Esri, DigitalGlobe, GeoEye, Earthstar Geographics, CNES/Airbus DS, USDA, USGS, AEX, Getmapping, Aerogrid, IGN, IGP, swisstopo, and the GIS User Community
MA P L- 1
P A L O A L T O A E R I A L V I E W
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
0 1 2 Miles
Source: City of Palo Alto, 2013; ESRI, 2016; PlaceWorks, 2016.
Railroads
City Boundary
Sphere of Influence
PALO
ALTO
PALO ALTO COMPREHENSIVE PLAN
LAND USE AND COMMUNITY DESIGN ELEMENT
L-4 REVISED COUNCIL DRAFT – MAY 1, 2017
REGIONAL PLANNING
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
EARLY HISTORY
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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MA 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
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
0 1 2 Miles
Source: City of Palo Alto, 2013; USGS, 2010; NHD 2013; ESRI, 2010; Tiger Lines, 2010; Stanford University, 2000; PlaceWorks, 2014.
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 Stations
^_
PALO ALTO COMPREHENSIVE PLAN
LAND USE AND COMMUNITY DESIGN ELEMENT
L-6 REVISED COUNCIL DRAFT – MAY 1, 2017
CITY DEVELOPMENT
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 DEVELOPMENT
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.
SUSTAINABILITY 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
PALO ALTO COMPREHENSIVE PLAN
LAND USE AND COMMUNITY DESIGN ELEMENT
REVISED COUNCIL DRAFT – MAY 1, 2017 L-7
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.
PALO ALTO COMPREHENSIVE PLAN
LAND USE AND COMMUNITY DESIGN ELEMENT
L-8 REVISED COUNCIL DRAFT – MAY 1, 2017
RESIDENTIAL NEIGHBORHOODS
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
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.
PALO ALTO COMPREHENSIVE PLAN
LAND USE AND COMMUNITY DESIGN ELEMENT
REVISED COUNCIL DRAFT – MAY 1, 2017 L-9
COMMERCIAL CENTERS
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:
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.
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.
PALO ALTO COMPREHENSIVE PLAN
LAND USE AND COMMUNITY DESIGN ELEMENT
L-10 REVISED COUNCIL DRAFT – MAY 1, 2017
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.
EMPLOYMENT DISTRICTS
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. An
implementation program addresses the pace of new office/R&D development by
updating an existing ordinance establishing an annual limit on the amount allowed.
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
0 0.5 1 Miles
MA P L - 3
C I T Y S T R U C T U R E
!Caltrain Stations
Sphere of Influence
City Boundary
Railroads
Park/Open Space
Regional Centers
1. University Avenue/Downtown
2. Stanford Shopping Center
Commercial Districts
1. South of Forest Area (SOFA)
2. California Avenue
3. Alma Village
1. Stanford Research Park
2. Stanford Medical Center
3. East Bayshore
4. San Antonio Road/Bayshore Corridor
"Ø
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Employment Centersl
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Employment Districts
1. California Avenue
2. Town & Country Village
3. South El Camino Real
Multi-Neighborhood Centers"Ø
1. Charleston Center
2. Edgewood Plaza
3. Midtown
Neighborhood Centers"Ø
PALO ALTO COMPREHENSIVE PLAN
LAND USE AND COMMUNITY DESIGN ELEMENT
L-12 REVISED COUNCIL DRAFT – MAY 1, 2017
PALO ALTO COMPREHENSIVE PLAN
LAND USE AND COMMUNITY DESIGN ELEMENT
REVISED COUNCIL DRAFT – MAY 1, 2017 L-13
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.
BUILDINGS
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.
HISTORIC RESOURCES
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 two historic districts: Ramona Street and Professorville.
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
PALO ALTO COMPREHENSIVE PLAN
LAND USE AND COMMUNITY DESIGN ELEMENT
L-14 REVISED COUNCIL DRAFT – MAY 1, 2017
buildings in the city have been rehabilitated and adaptively reused as office or
commercial spaces, including former single-family homes in and near downtown.
PUBLIC SPACES, STREETS, AND PARKING
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.
GATEWAYS
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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Source: City of Palo Alto, 2013; USGS, 2010; NHD 2013; ESRI, 2010; Tiger Lines, 2010; PlaceWorks, 2014.
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
0 1 2 Miles
MA 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
Major View Corridors
k Primary Gateways
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PALO ALTO COMPREHENSIVE PLAN
LAND USE AND COMMUNITY DESIGN ELEMENT
L-16 REVISED COUNCIL DRAFT – MAY 1, 2017
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Source: PlaceWorks, 2016; The City of Palo Alto, 2013.
0 1 2 Miles
*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
associated environmental review documents.
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
!Cultural or historic resource*
Highways
City Limit
Professorville
Historic District
Ramona StreetArchitectural District
PALO ALTO COMPREHENSIVE PLAN
LAND USE AND COMMUNITY DESIGN ELEMENT
L-18 REVISED COUNCIL DRAFT –MAY 1, 2017
URBAN FOREST
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.
PUBLIC ART
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.
UTILITIES 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 SOI with public services or infrastructure needs or deficiencies.
PALO ALTO COMPREHENSIVE PLAN
LAND USE AND COMMUNITY DESIGN ELEMENT
REVISED COUNCIL DRAFT – MAY 1, 2017 L-19
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.
PALO ALTO COMPREHENSIVE PLAN
LAND USE AND COMMUNITY DESIGN ELEMENT
L-20 REVISED COUNCIL DRAFT –MAY 1, 2017
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.
LAND USE DEFINITIONS
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.
Public 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 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/Controlled 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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0 0.25 0.5 0.75 10.125
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Source: ESRI, 2010; Tiger Lines, 2010; USGS, 2010; NHD, 2013; City of Palo Alto, 2013; PlaceWorks, 2015.
Comprehensive Plan Land Use Designations
Residential
Single Family Res
Multi-Family Res
Multi-Family Res (w/Hotel Overlay)
Mixed UseCommercial
Hotel Commercial
Service Commercial
Neighborhood Commercial
Regional/Community CommercialBusiness/Industrial
Light Industrial
Research/Office Park
Other
SOFA II CAP
SOFA I CAP
School District Land
Major Institution/Special Facility
Streamside Open Space
Public Park
Open Space/Controlled Development
Public Conservation LandStanford University Land Use Designations
Academic Campus
Campus Residential - Low Density
Campus Residential - Moderate Density
Open Space/Field Research
Campus Open Space
Special Conservation
Lake/Reservoir
!Caltrain Stations
Urban Service Area
City Boundary
Sphere of Influence
Railroads
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
MA P L -6
C O M P R E H E N S I V E L A N D U S E D E S I G N A T I O N S
PALO ALTO COMPREHENSIVE PLAN
LAND USE AND COMMUNITY DESIGN ELEMENT
L-22 REVISED COUNCIL DRAFT –MAY 1, 2017
PALO ALTO COMPREHENSIVE PLAN
LAND USE AND COMMUNITY DESIGN ELEMENT
REVISED COUNCIL DRAFT – MAY 1, 2017 L-23
RESIDENTIAL
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
will range from 1 to 7 units per acre, but rises to a maximum of 14 units on parcels
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
by zoning may be allowed where measurable community benefits will be derived,
services and facilities are available, and the net effect will be compatible with the
overall Comprehensive Plan.
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.
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
portion of the residents will use alternative modes of transportation. Net density will
PALO ALTO COMPREHENSIVE PLAN
LAND USE AND COMMUNITY DESIGN ELEMENT
L-24 REVISED COUNCIL DRAFT – MAY 1, 2017
range up to 50 units per acre, with minimum densities to be considered during
development of new City zoning regulations.
COMMERCIAL
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 floor area ratios will range up to 0.4.
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 banks. Non-retail uses such as medical and dental offices may also
locate in this designation. Examples include Stanford Shopping Center, Town and
Country Village, and University Avenue/Downtown. In some locations, residential
and mixed use projects may also locate in this category. Non-residential floor area
ratios range from 0.35 to 2.
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 Freeway. Non-residential floor area ratios will range up to 0.4.
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
PALO ALTO COMPREHENSIVE PLAN
LAND USE AND COMMUNITY DESIGN ELEMENT
REVISED COUNCIL DRAFT – MAY 1, 2017 L-25
residences above. This category includes Live/Work, Retail/Office, Residential/Retail
and Residential/Office development. Floor area ratios 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.
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
the conditional use permit process. In some locations, residential and mixed-use
projects may also locate in this category. Maximum allowable floor area ratio ranges
from 0.3 to 0.5, depending on site conditions.
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. Floor area
ratio will range up to 0.5.
PALO ALTO COMPREHENSIVE PLAN
LAND USE AND COMMUNITY DESIGN ELEMENT
L-26 REVISED COUNCIL DRAFT – MAY 1, 2017
INSTITUTIONAL
School District Lands: Properties owned or leased by public school districts and
used for educational, recreational, or other non-commercial, non-industrial purposes.
Floor area ratio 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.
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:
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.
Major Institution/University Lands/Campus 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.
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.
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.
PALO ALTO COMPREHENSIVE PLAN
LAND USE AND COMMUNITY DESIGN ELEMENT
REVISED COUNCIL DRAFT – MAY 1, 2017 L-27
GOALS, POLICIES, AND PROGRAMS
GROWTH MANAGEMENT
GOAL L-1 A compact and resilient city providing residents and visitors
with attractive neighborhoods, work places, shopping
districts, public facilities, and open spaces.
CONCENTRATING DEVELOPMENT WITHIN THE URBAN SERVICE AREA
Policy L-1.1 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. [Previous Policy L-1] [L1]
Policy L-1.2 Maintain and strengthen Palo Alto’s varied residential neighborhoods
while sustaining the vitality of its commercial areas and public facilities.
[Previous Policy L-4] [L2]
Policy L-1.3 Promote infill development in the urban service area that is
compatible with its surroundings and the overall scale and character of
the city to ensure a compact, efficient development pattern.
[(Previous Policy L-5 ) (PTC Policy L1.7) (Comp Plan Draft EIR
Mitigation Measure LAND-1)] [L3]
Program L1.3.1 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. Work with these same
stakeholders to identify sites and facilitate
opportunities for below market rate housing and
housing that is affordable. [(PTC Program L1.7.10)
(Edited)] [L4]
REGULATING LAND USE
Policy L-1.4 Regulate land uses in Palo Alto according to the land use definitions in
this Element and Map L-6. [NEW POLICY]
PALO ALTO COMPREHENSIVE PLAN
LAND USE AND COMMUNITY DESIGN ELEMENT
L-28 REVISED COUNCIL DRAFT – MAY 1, 2017
Policy L-1.5 Encourage land uses that address the needs of the community and
manage change and development to benefit the community. [NEW
POLICY] [L10]
Program L1.5.1 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.
[NEW PROGRAM] [L11]
Policy L-1.6 Use coordinated area plans to guide development 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. [NEW POLICY] [L67]
REGIONAL COOPERATION
Policy L-1.7 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. [Previous Policy L-2] [L7]
Program L1.7.1 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. [Previous Program L-1] [L8]
Policy L-1.8 Participate in regional strategies to address the interaction of jobs,
housing balance and transportation issues. [NEW POLICY] [L9]
GROWTH MANAGEMENT AND MONITORING
Policy L-1.9 Maintain a citywide cap of 1.7 million new square feet of office/R&D
development, exempting medical office uses in the 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
PALO ALTO COMPREHENSIVE PLAN
LAND USE AND COMMUNITY DESIGN ELEMENT
REVISED COUNCIL DRAFT – MAY 1, 2017 L-29
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. [Update of Previous Policy
L-8] [L15] and [L18]
Program L1.9.1 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. [NEW PROGRAM] [L19]
Program L1.9.2 Update and extend the City’s interim annual limit of
50,000 square feet of new office/R&D development
in order to moderate the pace of growth in
commercial and mixed use areas. Consider
additional exemptions to the annual limit as part of
this update. [NEW POLICY] [L23]
Policy L-1.10 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. [NEW POLICY] [L32]
A SUSTAINABLE COMMUNITY
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. [(Previous Policy L-10)(Comp Plan
Draft EIR Mitigation Measure AIR-1)] [L44]
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. [(Previous Policy
L-11)(Comp Plan Draft EIR Mitigation Measure AIR-2d, LAND-5)] [L45]
PALO ALTO COMPREHENSIVE PLAN
LAND USE AND COMMUNITY DESIGN ELEMENT
L-30 REVISED COUNCIL DRAFT – MAY 1, 2017
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. [(Previous Policy L-16) (Converted
to Program)] [L46]
Policy L-2.3 As a key component of a diverse, inclusive community, allow and
encourage a mix of housing types and sizes designed for greater
affordability, particularly smaller housing types, such as studios, co-
housing, cottages, clustered housing, accessory dwelling units, and
senior housing. [(Previous Policy L-13) (Combined with [L47], which is
also about encouraging small units/mix of types)] [L47] and [L60]
Policy L-2.4 Use a variety of strategies to stimulate housing. [NEW POLICY]
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. [NEW PROGRAM]
Program L2.4.2 Allow housing on the El Camino Real frontage of
the Stanford Research Park and at Stanford
Shopping Center, provided that adequate parking
and vibrant retail is maintained. [NEW PROGRAM]
Program L2.4.3 Explore multi-family housing elsewhere in Stanford
Research Park and near Stanford University Medical
Center (SUMC). [NEW PROGRAM]
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. [NEW PROGRAM] [L21]
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
PALO ALTO COMPREHENSIVE PLAN
LAND USE AND COMMUNITY DESIGN ELEMENT
REVISED COUNCIL DRAFT – MAY 1, 2017 L-31
would be to encourage a mix of land uses that
contributes to the vitality and walkability of
commercial centers and transit corridors. [(NEW
PROGRAM)(Comp Plan Draft EIR Mitigation
Measure LAND-1)] [L121]
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 only be used
for residential capacity. [NEW PROGRAM]
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. [NEW POLICY] [L55]
Program L2.5.1 Collaborate with PAUSD in exploring opportunities
to build housing that is affordable to school district
employees. [NEW PROGRAM] [L56]
Policy L-2.6 Create opportunities for new mixed use development consisting of
housing and retail. [Previous Policy L-9] [L120]
Policy L-2.7 Support efforts to retain housing that is more affordable in existing
neighborhoods, including a range of smaller housing types. [NEW
POLICY] [L53]
Program L2.7.1 Review development standards to discourage the
net loss of housing units. [NEW PROGRAM] [L54]
Policy L-2.8 When considering infill redevelopment, work to minimize
displacement of existing residents. [NEW POLICY] [L57]
Program L2.8.1 Conduct a study to evaluate various possible tools
for preventing displacement of existing residents.
[NEW PROGRAM] [L58]
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. [NEW
PROGRAM] [L59]
PALO ALTO COMPREHENSIVE PLAN
LAND USE AND COMMUNITY DESIGN ELEMENT
L-32 REVISED COUNCIL DRAFT – MAY 1, 2017
Policy L-2.9 Preserve ground-floor retail and limit the displacement of existing
retail from neighborhood centers. [NEW POLICY] [L124]
Policy L-2.10 Facilitate reuse of existing buildings. [Previous Program L 20] [NEW
POLICY] [L48]
Policy L-2.11 Encourage new development and redevelopment to incorporate
greenery and natural features through the use of features such as
green rooftops, pocket parks, plazas, and rain gardens. [(NEW POLICY)
(Combined with Previous Program C26)] [L49]
Policy L-2.12 Ensure that future development addresses potential risks from climate
change and sea level rise. [NEW POLICY] [L5]
DISTINCT NEIGHBORHOODS
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.
NEIGHBORHOOD COMPATIBILITY
Policy L-3.1 Ensure that new or remodeled structures are compatible with the
neighborhood and adjacent structures.[(Previous Policy L-12) (Comp
Plan Draft EIR Mitigation Measures AES-1, LAND-1, LAND-2)] [L50]
Policy L-3.2 Preserve residential uses from conversion to office or short-term
rentals. [NEW POLICY] [L51]
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.
[NEW PROGRAM] [L52]
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. [NEW
POLICY] [L61]
PALO ALTO COMPREHENSIVE PLAN
LAND USE AND COMMUNITY DESIGN ELEMENT
REVISED COUNCIL DRAFT – MAY 1, 2017 L-33
RESIDENTIAL DESIGN
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. [Previous Policy L-14] [L62]
Policy L-3.5 Avoid negative impacts of basement construction for single-family
homes on adjacent properties public resources and the natural
environment. [NEW POLICY] [L63]
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:
Land use issues. Evaluate the City’s policy of
excluding basements from the gross floor area
and maximum floor area ratio limits in the
zoning ordinance. Consider zoning revisions,
including greater setbacks, to limit basement
size and increase basement setbacks from
adjacent properties.
Impacts to the natural environment, such as
potential impacts to the tree canopy,
groundwater supply or quality, and soil
compaction.
Safety issues such as increased surface flooding,
increased groundwater intrusion with sea level
rise, emergency access and egress, or sewage
backflows. [NEW PROGRAM] [L64]
COMMERCIAL CENTERS
GOAL L-4 Inviting pedestrian scale centers that offer a variety of retail
and commercial services and provide focal points and
community gathering places for the city’s residential
neighborhoods and employment districts.
PALO ALTO COMPREHENSIVE PLAN
LAND USE AND COMMUNITY DESIGN ELEMENT
L-34 REVISED COUNCIL DRAFT – MAY 1, 2017
COMMERCIAL CENTERS AND MIXED USE AREAS
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. [(Previous Policy L-18)(Comp Plan Draft EIR Mitigation
Measure LAND-1)] [L65]
Program L4.1.1 Evaluate the effectiveness of formula retail limits
adopted for California Avenue and consider
whether these limits should be applied in other
Centers. Develop incentives for local small
businesses where warranted. [NEW PROGRAM]
[L66]
Policy L-4.2 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. [Previous Policy L-20] [L70]
Policy L-4.3 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. [Previous
Policy L-21] [L71]
Program L4.3.1 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. [Previous
Program L-16] [L72]
Program L4.3.2 Through public/private cooperation, provide well-
signed, clean, and accessible restrooms [Previous
Program L-17] [L73]
Program L4.3.3 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.[Previous Policy L-22] [L74]
PALO ALTO COMPREHENSIVE PLAN
LAND USE AND COMMUNITY DESIGN ELEMENT
REVISED COUNCIL DRAFT – MAY 1, 2017 L-35
Program L4.3.4 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 [Previous
Program L-18] [L75]
HOTELS
Policy L-4.4 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. [NEW
POLICY] [L12]
Program L4.4.1 Explore increasing hotel FAR from 2.0 to 3.0 in the
University Avenue/Downtown area, and 2.5 in areas
outside of Downtown. [NEW PROGRAM] [L201]
REGIONAL CENTERS
University Avenue/Downtown
Policy L-4.5 Maintain and enhance the University Avenue/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 pedestrian character. [(Previous Policy L-23) (Comp Plan
Draft EIR Mitigation Measure AES-1)] [L76]
Policy L-4.6 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. [Previous Policy L-24] [L77]
Program L4.6.1 Prepare a Coordinated Area Plan for Downtown.
[Previous Program L-22] [L79]
PALO ALTO COMPREHENSIVE PLAN
LAND USE AND COMMUNITY DESIGN ELEMENT
L-36 REVISED COUNCIL DRAFT – MAY 1, 2017
Stanford Shopping Center
Policy L-4.7 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
[Previous Policy L-26] [L80] Al housing strategies are located in Goal
L-2, including housing at Stanford Shopping Center. See Program
L-2.4.2.
Program L4.7.1 While preserving adequate parking to meet
demand, identify strategies to reuse surface parking
lots. [(Previous Program L-23) (Merged with
Previous Policy L-27)] [L81]
MULTI-NEIGHBORHOOD CENTERS
California Avenue
Policy L-4.8 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. [Previous Policy L-28] [L82]
Program L4.8.1 Prepare a coordinated area plan for the Fry's site
and surrounding California Avenue area. The plan
should describe a vision for the future of the Fry's
site 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. [NEW PROGRAM] [L69]
Program L4.8.2 Create regulations for the California Avenue area
that encourage the retention of smaller buildings to
provide spaces for existing [Previous Program L-27]
[L84]
Policy L-4.9 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. [Previous Policy
L-30] [L85]
PALO ALTO COMPREHENSIVE PLAN
LAND USE AND COMMUNITY DESIGN ELEMENT
REVISED COUNCIL DRAFT – MAY 1, 2017 L-37
Town and Country Village
Policy L-4.10 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. [Previous Policy L-32] [L88]
Policy L-4.11 In Town and Country Village, encourage a vibrant retail environment
and urban greening. [Previous Policy L-33] [L89]
Policy L-4.12 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. [Previous Policy L-34] [L90]
NEIGHBORHOOD CENTERS
Policy L-4.13 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. [Previous
Policy L-37] [L91]
Policy L-4.14 Encourage maximum use of Neighborhood Centers by ensuring that
the publicly maintained areas are clean, well-lit, and attractively
landscaped. [Previous Policy L-38] [L92]
Policy L-4.15 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.[Previous
Policy L-40] [L93]
PALO ALTO COMPREHENSIVE PLAN
LAND USE AND COMMUNITY DESIGN ELEMENT
L-38 REVISED COUNCIL DRAFT – MAY 1, 2017
EMPLOYMENT DISTRICTS
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. [Previous Policy L-42 and L-44] [L94]
and [L97]
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. [NEW PROGRAM] [L98]
Policy L-5.2 Provide landscaping, trees, sidewalks, pedestrian paths, 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. [Previous Policy L-43] [L95]
Revised to be consistent with wording in Safety Element
Policy L-5.3 Design paths and sidewalks to be attractive and comfortable and
consistent with the character of the area where they are located.
[(Previous Program L-44) (Converted to Policy)] [L96]
Policy L-5.4 Maintain the East Bayshore and San Antonio Road/Bayshore Corridor
areas as diverse business and light industrial districts, , consistent with
the approved 2012 East Meadow Circle Concept Plan (Appendix Y of
this Comprehensive Plan). [Previous Policy L-46] [L100]
GOAL L-6 Well-designed buildings that create coherent development
patterns and enhance city streets and public spaces.
PALO ALTO COMPREHENSIVE PLAN
LAND USE AND COMMUNITY DESIGN ELEMENT
REVISED COUNCIL DRAFT – MAY 1, 2017 L-39
DESIGN OF BUILDINGS AND PUBLIC SPACE
Policy L-6.1 Promote high quality design and site planning that is compatible with
surrounding development and public spaces. [(Comp Plan Draft EIR
Mitigation Measure AES-1, LAND-1, LAND-2) (Previous Policy L-48)]
[L102]
Program L6.1.1 Promote awards programs and other forms of
public recognition for projects of architectural merit
that contribute positively to the community.
[Previous Program L-53] [L103]
Policy L-6.2 Use the Zoning Ordinance, design review process, design guidelines,
and Coordinated Area Plans to ensure high quality residential and
commercial design and architectural compatibility. [(Previous Program
L-48)(Comp Plan Draft EIR Mitigation Measure LAND-1, LAND-2)]
[L104]
Policy L-6.3 Require bird-friendly design. [NEW POLICY] [L105]
Program L6.3.1 Develop guidelines for bird-friendly building design
that minimizes hazards for birds and reduces the
potential for collisions. [NEW PROGRAM] [L106]
Policy L-6.4 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. [(Previous Program L-49) (Converted to Policy)
(Comp Plan Draft EIR as Mitigation Measure AES-1)] [L107]
Policy L-6.5 Guide development to respect views of the foothills and East Bay hills
from public streets in the developed portions of the City. [Previous
Policy L-3] [L108]
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. [Previous Policy L-49] [L109]
Program L6.6.1 Modify design standards for mixed use projects to
promote 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
PALO ALTO COMPREHENSIVE PLAN
LAND USE AND COMMUNITY DESIGN ELEMENT
L-40 REVISED COUNCIL DRAFT – MAY 1, 2017
and balconies along public ways, and landscaping,
and trees along the street. Avoid blank or solid
walls at street level. [Previous Program L-10] [L122]
and [L110]
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. [(Note: Council
Motion 1/30/17: This is exact wording of Previous Policy L-6)(Comp
Plan Draft EIR Mitigation Measure LAND-1, LAND-2)] [L117]
Program L6.7.1 Implement architectural standards to assure they
effectively address land use transitions. [(NEW
PROGRAM)(Comp Plan Draft EIR Mitigation
Measure LAND-2)] [L118]
Policy L-6.8 Support existing regulations that preserve exposure to natural light for
single-family residences. [NEW POLICY] [L119]
Policy L-6.9 Discourage the use of fences that obscure the view of the front of
houses from the street. [(Previous Program L-52)(Converted to
Policy)] [L125]
Policy L-6.10 Encourage high quality signage that is attractive, energy-efficient,
appropriate for the location, and balances visibility needs with
aesthetic needs. [Previous Policy L-50] [L126]
GOAL L-7 Conservation and preservation of Palo Alto’s
historic buildings, sites, and districts.
HISTORIC RESOURCES
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. [Previous Policy
L-51] [L127]
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REVISED COUNCIL DRAFT – MAY 1, 2017 L-41
Program L7.1.1 Update and maintain the City’s Historic Resource
Inventory to determine all historic resources that
are eligible for the California Register as well as
important examples of California history or
prehistory. Historic resources may consist of a
single building or structure or a district. [(Previous
Program L-54) (Draft EIR Mitigation Measure
CULT-1b)] [L128]
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. [Previous
Program L-55] [L129]
Policy L-7.2 If a proposed development would affect a potential historic resource
that has not been evaluated for inclusion into the City’s Historic
Resources Inventory, consider whether it is eligible for inclusion in the
City’s Inventory prior to the issuance of a demolition or alterations
permit. [(NEW POLICY) (Comp Plan Draft EIR Mitigation Measure
CULT-1c)] [L130]
Policy L-7.3 Actively seek state and federal funding for the preservation of
buildings of historical merit and consider public/private partnerships
for capital and program improvements. [Previous Policy L-53] [L131]
Policy L-7.4 Relocation may be considered as a preservation strategy when
consistent with State and National Standards regarding the relocation
of historic resources. [Previous Policy L-55] [L132]
Policy L-7.5 To reinforce the scale and character of University Avenue/Downtown,
promote the preservation of significant historic buildings. [Previous
Policy L-56] [L133]
Policy L-7.6 Promote awards programs and other forms of public recognition for
exemplary Historic Preservation projects. [(Previous Program
L-62)(Converted to Policy)] [L134]
Policy L-7.7 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.
[(Previous Program L-63) (Converted to Policy)] [L135]
PALO ALTO COMPREHENSIVE PLAN
LAND USE AND COMMUNITY DESIGN ELEMENT
L-42 REVISED COUNCIL DRAFT – MAY 1, 2017
REHABILITATION AND REUSE
Policy L-7.8 Promote adaptive reuse of old buildings. [Previous Policy L-58] [L136]
Program L7.8.1 Develop incentives for the retention and
rehabilitation of buildings with historic merit in all
zones and revise existing zoning and permit
regulations as needed to minimize constraints to
adaptive reuse, particularly in retail areas. [(Previous
Policy L-57) (Converted to Program)] [L137]
Program L7.8.2 Create incentives to encourage salvage and reuse of
discarded historic building materials. [Previous
Program L-57] [L138]
Program L7.8.3 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. [Previous Program
L-58] [L139]
Policy L-7.9 Allow compatible nonconforming uses for the life of historic buildings.
[(Previous Program L-61) (Converted to Policy)] [L140]
Policy L-7.10 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. [Previous Policy L-52] [L141]
Policy L-7.11 Maintain the historic integrity of building exteriors. Consider parking
exceptions for historic buildings to encourage rehabilitation.
[(Previous Program L-59)(Converted to Policy)] [L142]
Program L7.11.1 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. [NEW PROGRAM] [L143]
PALO ALTO COMPREHENSIVE PLAN
LAND USE AND COMMUNITY DESIGN ELEMENT
REVISED COUNCIL DRAFT – MAY 1, 2017 L-43
Policy L-7.12 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.[(Previous
Program L-64) (Converted to Policy)] [L144]
Policy L-7.13 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. [Previous Program L-60] [L145] and
[L30]
ARCHAEOLOGICAL RESOURCES
Policy L-7.14 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
nineteenth century. [(Previous Policy L-60)(Comp Plan Draft EIR
Mitigation Measure CULT-1c)] [L146]
Policy L-7.15 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. [(NEW POLICY) (Comp Plan Draft
EIR Mitigation Measure CULT-3)] [L147]
Policy L-7.16 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. [(Previous
Program L-67)(Converted to Policy)(Comp Plan Draft EIR Mitigation
Measure CULT-3)] [L148]
Policy L-7.17 Ensure that developers understand their obligation to meet state
codes regarding the identification and protection of archaeological and
paleontological deposits. [(NEW POLICY)(Comp Plan Draft EIR
Mitigation Measure CULT-3] [L149]
PALO ALTO COMPREHENSIVE PLAN
LAND USE AND COMMUNITY DESIGN ELEMENT
L-44 REVISED COUNCIL DRAFT – MAY 1, 2017
PARKS AND GATHERING PLACES
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 public life.
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. [NEW POLICY] [L150]
Policy L-8.2 Provide comfortable seating areas and plazas with places for public art
adjacent to library and community center entrances. [Previous Policy
L-62] [L156]
Policy L-8.3 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. [Previous Policy
L-63] [L157]
Policy L-8.4 Create facilities for civic and intellectual life, such as better urban
public spaces for civic programs and speakers, cultural, musical and
artistic events. [NEW POLICY] [L158]
Policy L-8.5 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. [Previous Policy L-72]
[L159]
Policy L-8.6 Seek potential new sites for art and cultural facilities, public spaces,
open space, and community gardens [Previous Policy L-64] [L160]
Policy L-8.7 Encourage religious and private institutions to collaborate with the
community and the surrounding neighborhood.[Previous Policy L-65]
[L161]
PUBLIC STREETS AND PUBLIC SPACES
GOAL L-9 Attractive, inviting public spaces and streets that enhance
the image and character of the city.
PALO ALTO COMPREHENSIVE PLAN
LAND USE AND COMMUNITY DESIGN ELEMENT
REVISED COUNCIL DRAFT – MAY 1, 2017 L-45
STREETS AND PARKING
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.
[(Previous Policy L-69) (Previous Program L-71)] [L162]
Program L9.1.1 Evaluate existing zoning code setback requirements
to ensure they are appropriate for scenic routes.
[NEW PROGRAM] [L163]
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. [Previous Policy L-78] [L164]
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. [Previous Policy L-17] [L172]
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. [NEW
PROGRAM] [L173]
.PUBLIC SPACES
Policy L-9.4 Maintain and enhance existing public gathering places and open
spaces and integrate new public spaces at a variety of scales. [NEW
POLICY] [L169]
Policy L-9.5 Encourage use of data driven, innovative design methods and tactics
and use data to understand to evaluate how different community
members use public space. [NEW POLICY] [L155]
PALO ALTO COMPREHENSIVE PLAN
LAND USE AND COMMUNITY DESIGN ELEMENT
L-46 REVISED COUNCIL DRAFT – MAY 1, 2017
Policy L-9.6 Create, preserve and enhance parks and publicly accessible, shared
outdoor gathering spaces within walking and biking distance of
residential neighborhoods. [Previous Policy L-15] [L170]
Program L9.6.1 Analyze existing neighborhoods and determine
where publicly accessible shared, outdoor gathering
spaces are below the citywide average. Create new
public spaces, including public squares, parks and
informal gathering spaces in these neighborhoods.
[NEW PROGRAM] [L171]
GATEWAYS
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. [Previous Policy L-71] [L174]
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. [Previous
Program L-72] [L175]
URBAN FOREST
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. [NEW POLICY] [L176]
Program L9.8.1 Establish incentives to encourage native trees and
low water use plantings in new development
throughout the city. [NEW PROGRAM] [L177]
Policy L-9.9 Involve the Urban Forester, or appropriate City staff, in development
review. [NEW POLICY] [L179]
PALO ALTO COMPREHENSIVE PLAN
LAND USE AND COMMUNITY DESIGN ELEMENT
REVISED COUNCIL DRAFT – MAY 1, 2017 L-47
Policy L-9.10 Recognize the urban forest as City infrastructure to be maintained in
accordance with applicable guidelines and requirements. [NEW
POLICY] [L180]
Policy L-9.11 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. [Previous Policy L-79] [L181]
Program L9.11.1 Continue the citywide undergrounding of utility
wires. Minimize the impacts of undergrounding on
street tree root systems and planting areas.
[Previous Program L-80] [L182]
Program L9.11.2 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. [Previous Program L-81] [L183]
Policy L-9.12 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. [(NEW POLICY)
(PTC Policy L2.9, edited)] [L184]
Program L9.12.1 Implement the findings of the City’s Infrastructure
Blue Ribbon Committee and its emphasis for
rebuilding our civic spaces. [(NEW PROGRAM) (PTC
Program L2.9.8)] [L186]
Program L9.12.2 Identify City-owned properties where combinations
of wireless facilities can be co-located, assuming
appropriate lease agreements are in place. [(NEW
PROGRAM)(PTC Program L2.9.5)] [L187]
PALO ALTO COMPREHENSIVE PLAN
LAND USE AND COMMUNITY DESIGN ELEMENT
L-48 REVISED COUNCIL DRAFT – MAY 1, 2017
GOAL L-10 Maintain an economically viable local airport with minimal
environmental impacts.
PALO ALTO AIRPORT
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. [(Previous Policy T-57)] [L190]
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.
[(Previous Program T-58)] [L191]
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. [NEW PROGRAM] [L192]
Program L10.1.3 Identify and pursue funding to address
maintenance, safety and security improvements
needed at PAO. [NEW PROGRAM] [L193]
Policy L-10.2 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. [NEW POLICY] [L188]
Policy L-10.3 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. [NEW POLICY] [L194]
Program L10.3.1 Establish and implement a system for processing,
tracking and reporting noise complaints regarding
local airport operations on an annual basis. [NEW
PROGRAM] [L195]
PALO ALTO COMPREHENSIVE PLAN
LAND USE AND COMMUNITY DESIGN ELEMENT
REVISED COUNCIL DRAFT – MAY 1, 2017 L-49
Program L10.3.2 Work with the airport to pursue opportunities to
enhance the open space and habitat value of the
airport. These include:
maintaining native grasses;
reconstructing levees to protect the airport
from sea level rise while enhancing public
access and habitat conservation; and
evaluating the introduction of burrowing owl
habitat. This program is subject to federal
wildlife hazard requirements and guidelines
for airports. [NEW PROGRAM] [L196]
Policy L-10.4 Provide public access to the Airport for bicyclists and pedestrians.
[NEW POLICY] [L197]
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. [(Previous Program T-57)] [L198]
Policy L-10.5 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. [NEW POLICY] [L199]
Policy L-10.6 Encourage the use of alternatives to leaded fuel in aircraft operating in
and out of Palo Alto Airport. [NEW POLICY] [L200]
PALO ALTO COMPREHENSIVE PLAN
LAND USE AND COMMUNITY DESIGN ELEMENT
L-50 REVISED COUNCIL DRAFT – MAY 1, 2017
TRANSPORTATION
REVISED COUNCIL DRAFT – JULY 19, 2016ANUARY 3MAY 1, 2017 T-1
2
This Element has been prepared by City staff on the basis of input from the CAC, the
Transportation subcommittee and members of the public received between October
2015 and July 2016. Additionally, this revised draft Element presents changes made
in response to City Council review on September 19, 2016.
INTRODUCTION
Meeting the transportation needs of residents, visitors, and businesses will demand
innovative and forward-looking solutions. The Transportation Element provides a
policy framework for these solutions, recognizing that future growth in transportation
needs cannot be met by the automobile alone. Strong dependence on the
automobile has resulted in air and water pollution, excess noise, increased energy
use, and visual degradation in Palo Alto and throughout the San Francisco Bay Area.
There have also been impacts on Palo Alto neighborhoods, as motorists have used
local streets as alternatives to overcrowded arterials.
This Element addresses transportation and mobility these issues comprehensively
and acknowledges that the future will be different than the present and the past.
Recognizing changing demographics and travel preferences, new technologies, and
new opportunities, the Element provides a policy framework which includes
VISION: Palo Alto will build and maintain a sustainable network
of safe, accessible and efficient transportation and parking
solutions for all users and modes, while protecting and
enhancing the quality of life in Palo Alto neighborhoods.
Programs will include alternative and innovate transportation
processes, and the adverse impacts of automobile traffic on the
environment in general and residential streets in particular will be
reduced. Streets will be safe, attractive and designed to
enhance the quality and aesthetics of Palo Alto neighborhoods.
Palo Alto recognizes the regional nature of our transportation
system, and will be a leader in seeking regional transportation
solutions, prioritizing Caltrain service improvements and railroad
grade separations.
PALO ALTO COMPREHENSIVE PLAN
TRANSPORTATION ELEMENT
T-2 REVISED COUNCIL DRAFT – JULY 19, 2016ANUARY 3MAY 1, 2017
solutions for implementation today in order to lay the groundwork for the future.
Together with investments in infrastructure, these solutions policy framework seeks
to reduce reliance on single occupant vehicles, address congestion, and reduce
through traffic and non-resident parking in Palo Alto neighborhoods, leading will
lead to an integrated transportation system that serves local, regional, and intercity
travel.
This Element meets the State requirement for a Circulation Element, addressing the
various aspects of circulation, including complete streets, expressways and freeways,
transit, walking, bicycling, parking, and special transportation needs.
CONNECTIONS TO OTHER ELEMENTS
Transportation choices and options are shaped by many factors including land use,
economics, and community values. TAs such, the Transportation Element is strongly
influenced by the Land Use Element and Housing Element because the distribution
and density of residential, commercial, and office uses have a direct correlation to
the type, frequency, and use of transportation options a community employs. In a
jobs-rich community like Palo Alto that imports significant numbers of workers,
adding housing could be one strategy to reduce the number of people who have to
drive into the city each day. The Transportation Element also supports the objectives
of the Business and Economics Element, Community Services and Facilities Element,
and the Natural Environment Element, and the Safety and Noise Element by paving
the way for a transportation system that supports economic development, helps
people get to and from community gathering places, emphasizes walkable
neighborhoods and access services in a manner that limits impacts to the natural
environment.
SUSTAINABLE TRANSPORTATION
In 2014, more than 60 percent of all trips made each day in Palo Alto involved
single-occupant motor vehicles. Although the drive alone rate this ratio is a lower
than in many other Bay Area communities, road travel to, from, and within the city is
still the greatest single largest source of local greenhouse gas (GHG) emissions and
derives from local (internal) trips as well as commute trips. As a major regional
employment center, Palo Alto attracts commuters from throughout the Bay Area on
a daily basis, but US Census data also show that Palo Alto residents make most of
their trips by car. Building a more sustainable transportation system will require
PALO ALTO COMPREHENSIVE PLAN
TRANSPORTATION ELEMENT
REVISED COUNCIL DRAFT – JULY 19, 2016ANUARY 31, 2017 T-3
addressing regional and local travel patterns, as well as trips made for work, school,
errands or entertainment.
The key to a sustainable transportation system lies in providing more options and
more convenience so that people will more readily choose not to drive. Palo Altans
recognize that, at times, driving is necessary, but to address congestion, keep
neighborhood streets safe, reduce air quality and noise impacts, lessen the effects of
climate change, and improve overall quality of life, the policies and programs in this
Element must focus on providing convenient, affordable alternatives to the
automobile.
Facilitating a shift to alternative modes of transportation will require creative
collaboration among transit agencies, employers, and local jurisdictions as well as
residents and commuters themselves. Technology also has a role to play, whether
providing up-to-the minute information to inform choices or in delivering new and
better modes of travel. Improvements to the bicycling and pedestrian environment
will help encourage more people to bike and walk on a regular basis.
INNOVATION AND COLLABORATION
Palo Alto is currently pursuing a number of innovative tools to increase
transportation options for residents and workers.
TRANSPORTATION DEMAND MANAGEMENT
Transportation dDemand mManagement (TDM) refers to strategies that improve
transportation system efficiency and reduce congestion by shifting trips from single-
occupant vehicles to collective forms of transport, including mass transit, carpools
and private shuttles. TDM is a critical component of a comprehensive strategy to
reduce traffic congestion. TDM programs are typically incorporated in new
development and can include a range of infrastructure investments and incentives
for the use of alternatives to the automobile, as well as parking management
strategies initiatives and marketing. Employers and local governments often
collaborate in developing and implementing TDM area-wide TDM programs aimed
at reducing single occupant vehicle use by existing employees. These, and activities
can be coordinated through a tTransportation mManagement aAssociation (TMA)
made up of local businesses in a commercial district or industrial park. Stanford
University operates one of the most a comprehensive and successful TDM programs
in the country for the University, Hospital and the Medical Center, and a program is
in development for the and Research Park campuses. The program includes a
61% 23%
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PALO ALTO DAILY MODE SHARE -
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PALO ALTO COMPREHENSIVE PLAN
TRANSPORTATION ELEMENT
T-4 REVISED COUNCIL DRAFT – JULY 19, 2016ANUARY 3MAY 1, 2017
commute club, the Marguerite Shuttle, EcoPass/GoPass and bicycle and vehicle
rentals, among others, and encourages more efficient use of transportation
infrastructure. In January 2015, the City of Palo Alto supported began the process to
establishment aof a TMA for the downtown area, in collaboration with local
businesses and residents. The success of this effort and its potential to expand to
other areas of the City will depend on securing ongoing funding and on the
committed participation of employers who face parking and traffic challenges in
downtown.
ALTERNATIVE FUEL VEHICLES
Alternative fuel vehicles—those that run on electricity, biodiesel, compressed natural
gas and other alternatives to petroleum fuels—help reduce GHG emissions by
utilizing cleaner fuels or zero emission alternatives. In 2014, the City of Palo Alto
adopted an ordinance that requires electric vehicle (EV) – ready infrastructure for all
new commercial construction to encourage the use of electric vehicles and develop
the infrastructure for this growing market. As the City continues this effort, additional
infrastructure may be necessary. However, while alternative fuel vehicles do reduce
GHGs, they are still a contributor to congestion and delay.
MOBILITY AS A SERVICE
In this context mobility refers to the options that Palo Alto residents, employees and
visitors have for getting to and from their destinations. The use of transportation
services is beginning to replace private vehicle ownership in the region, led by a
number of prominent ride sharing and e-hailing car services like Uber and Lyft).
Originating in Europe, the concept of “Mobility as a Service” (MaaS), allows on-
demand trip planning enabled by smartphones and mobile devices and provided by
"pop up" bus-, car-, and bike-sharing services. Palo Alto is partnering with Joint
Venture Silicon Valley, the Santa Clara Valley Transportation Authority (VTA), and the
City of San Jose to develop a MaaS/smartphone app (Commuter Wallet) that
combines access to multiple transportation modes and employer commute benefits,
incentivizing non-single-occupant vehicle travel.
PUBLIC TRANSIT
Residents, workers, and visitors to Palo Alto have an array of transit options within
the city and to the surrounding region. Maps T-1 and T-2 show the range of transit
services in Palo Alto. Map T-1 focuses on regional transit options, which and Map T-2
illustrates local transit options. Overall, regional transit is heavily used, while public
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T R A N S P O R T A T I O N E L E M E N T
PR EL IM INA RY DR A FT M AP T- 2
P A L O A L T O L O C A L T R A N S I T C O N N E C T I O N S
Source: Palo Alto Unified School District, 2012; Santa Clara VTA, 2015; SamTrans, 2015; City of Palo Alto, 2015; Caltrain, 2015; PlaceWorks, 2015.Crosstown Shuttle
Embarcadero Shuttle
East Palo Alto Caltrain Shuttle
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Santa Clara Valley Transportation Authority (VTA)
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PALO ALTO COMPREHENSIVE PLAN
TRANSPORTATION ELEMENT
REVISED COUNCIL DRAFT – JULY 19, 2016ANUARY 31, 2017 T-7
transit services serving the local area are below capacity levels. Policies in this
Element support iImproving local services like shuttles to increase ridership and
support traditional transit providers with first and last mile connectionsbetter match
ridership needs could be one strategy to increase ridership and make more effective
use of available capacity.
RAIL SERVICE
Caltrain is Palo Alto’s primary regional transit service, with riders traveling between
San Francisco and Gilroy. Since introduction of the baby bullet limited express trains
in 2003, ridership has more than doubled and today, Palo Alto’s University Avenue
station the Palo Alto Transit Center is the second largest generator of weekday
Caltrain trips, behind San Francisco’s 4th and King Street station. Long-range plans for
the Palo Alto Station and the adjacent University Avenue underpass area will
enhance the pedestrian experience and improve circulation and access for all
modesthe station’s visibility of the transit station. The planned Caltrain extension to
the Transbay Terminal in downtown San Francisco will improve regional transit
connections, and Caltrain electrification will speed service and increase capacity while
decreasing noise and air pollution.
As of late 2015, the San Mateo County Transit District (SamTrans) has re-initiated
study of possible future railtransit service along the Dumbarton corridor, to link the
Alameda County communities of Newark, Union City and Fremont with the San
Mateo and Santa Clara Counties.y communities of Redwood City, Menlo Park, and
East Palo Alto via an existing, unused rail bridge across the San Francisco Bay. The
study will also evaluate connections to Palo Alto and other cities in Santa Clara
County.
BUS SERVICE
Three transit providers, VTA, SamTrans, and AC Transit, provide bus service in Palo
Alto, connecting residents to both local and regional destinations. The VTA operates
local bus service within the city, with 14 bus routes in Palo Alto and an express bus
network that serves the Stanford Research Park. VTA, and also offers connections to
VTA light rail, Caltrain, Altamont Corridor Express (ACE) and AMTRAK Capitol
Corridor. SamTrans operates bus service throughout San Mateo, San Francisco, and
Santa Clara counties, helping to connect Palo Alto to other parts of the Peninsula and
Silicon Valley. AC Transit’s Dumbarton Express provides express bus service between
the East Bay and communities on the Peninsula.
In November 2015, Palo Alto City Council
adopted a cComplete sStreets resolution
affirming the City’s longstanding
commitment to design and construction
of a comprehensive, integrated
transportation network that allows safe
and convenient travel along and across
streets for all users, including pedestrians,
bicyclists, persons with disabilities,
motorists, movers of commercial goods,
users and operators of public
transportation, emergency vehicles,
seniors, children, youth, and families.
Council also adopted National
Association of City Transportation Officials
(NACTO) guidelines for bikeway and
urban street design, which incorporate
cComplete sStreets best practices.
PALO ALTO COMPREHENSIVE PLAN
TRANSPORTATION ELEMENT
T-8 REVISED COUNCIL DRAFT – JULY 19, 2016ANUARY 3MAY 1, 2017
The VTA’s proposed El Camino Real Bus Rapid Transit (BRT) project aims to improve
transit operations and increase transit ridership along the El Camino Real Corridor.
Policies in this Element support enhanced bus service in shared travel lanes wWith
curbside stations and signal priority with (“queue jump lanes ing”), BRT in shared
travel lanes will to provide faster, more reliable service with target stops and
specialized transit vehicles and facilities. The El Camino Real BRT Corridor extends
from Downtown San Jose (Arena Station) to Downtown Palo Alto (Palo Alto Transit
Center) passing through the cities of Santa Clara, Sunnyvale, Mountain View and Los
Altos.
SHUTTLE SERVICE
There are four types of shuttle services operating in Palo Alto, including the Stanford
University Marguerite shuttle, the VTA shuttle, the City-operated Palo Alto Shuttle,
and private employee shuttles which transit through Palo Alto offering transportation
for employees to other job centers on the Peninsula. The Marguerite, run by
Stanford University Parking and Transportation Services, is a free public service that
connects the Stanford campus to the Palo Alto Caltrain StationTransit Center and
Downtown. The VTA provides low cost fare based service for residents of Santa Clara
County. The Palo Alto Free Shuttle is free wheelchair-accessible shuttle provided by
the City to connect important destinations in the community, including Caltrain
stations; the City is developing plans for enhanced service in response to community
input. Marguerite and Palo Alto Shuttle routes are shown on Map T-1.
FIRST/LAST MILE CONNECTIONS
The concept of first/last mile connections refers to the level of accessibility to and
from transit stations. Many people live or work within a mile from a transit station or,
bus stop; however, distance, perception of safety, and inconvenience may deter
them from using transit, so the entire trip is made by single-occupant vehicle simply
for lack of convenience of a small but crucial segment of the trip. Currently, Tthe Palo
Alto shuttle, biking, and walking are also provides first/last mile connections to and
from Caltrain stations, as does the provision of bike share facilities. For now, walking
and biking remain the best first/last mile option for most of Palo Alto. Future
improvements should focus on making walking, and bicycling, shuttle service, and
ridesharing more efficient, comfortable and safe. In addition, improved shuttle
service, ridesharing and other on-demand transportation services could be integrated
into the City’s overall first/last mile connection strategy and beyond, through MaaS.
PALO ALTO COMPREHENSIVE PLAN
TRANSPORTATION ELEMENT
REVISED COUNCIL DRAFT – JULY 19, 2016ANUARY 31, 2017 T-9
BICYCLING AND WALKING
California’s Complete Streets Act requires local jurisdictions to plan for land use
transportation policies that reflect a “complete streets” approach to mobility.
Complete streets policies and street design principles provide for the needs of all
road users, including pedestrians, bicyclists, transit operators and riders, children, the
elderly, and people of all ability levels.
BIKING
Palo Alto dedicated its formal bikeway system—one of the nation’s first—in 1972.
Bikeways have since become commonplace, and considerable progress has been
made in overcoming barriers to bicycle travel in and around Palo Alto. Palo Alto’s
bikeway network consists of on-road bicycle lanes, bicycle boulevards and bicycle
routes, off-roadway shared-use paths and bridges, and bicycle parking facilities.
Fourteen underpasses and bridges span barriers such as freeways, creeks, and
railroad tracks. Map T-3 shows the existing and planned bikeway network in Palo
Alto.
Palo Alto is in a position to build on the existing network, significantly increasing its
proportion of travel by bicycle and is actively pursuing an expanded bike share
program.
The Palo Alto Bicycle + Pedestrian Transportation Plan, adopted in 2012 (BPTP
2012), contains a policy framework, design guidance, and specific recommendations
to increase walking and biking rates over the next decade and beyond. BPTP 2012
encourages planning, construction, and maintenance of complete streets that are
safe and accessible to all modes and people of all ages and abilities., incorporating
best practices from the National Association of Transportation Officials (NACTO)
Bikeway Design Guide. Future challenges include more routes for northeast-
southwest travel and overcoming physical barriers like railroads and freeways. Better
provisions for bicycles on transit enables bicycles as a first/last mile option,
promoting the use both modes by increasing convenience and accessibility of
destinations.
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T R A N S P O R T A T I O N E L E M E N T
MA P T - 3
B I K E W A Y S I N P A L O A L T O
Source: City of Palo Alto, 2016; PlaceWorks, 2016.
0 0.5 1 Mile
Class I Multi-Use Path
Park Trails
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Bicycle Boulevard
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PALO ALTO COMPREHENSIVE PLAN
TRANSPORTATION ELEMENT
REVISED COUNCIL DRAFT – JULY 19, 2016ANUARY 31, 2017 T-11
WALKING
Mode share data indicate that walking accounts for more trips than public transit in
Palo Alto each day, yet is an often overlooked means of transportation. As shown on
Map T-4, Palo Alto's pedestrians are generally well served by current facilities and will
benefit from the attention given to street trees, walkable neighborhoods, and
pedestrian- oriented design. The most needed improvements are to fill in the gaps in
the sidewalk system, make intersection crossings “friendlier,” and overcome barriers
to northeast-southwest travel.
FUNDING IMPROVEMENTS
Transportation infrastructure in Palo Alto is supported through the City’s Capital
Improvement Program (CIP) and impact fees on new development. The CIP is
approved on an annual basis by the City Council and may include projects such as
roadway and other improvements to the circulation system. The Citywide
Transportation Impact Fee, adopted in 2007 and in effect through 2025, is designed
to recover a portion of the costs associated with relieving traffic congestion
associated with new development; the fee is calculated based on the number of
additional vehicle trips generated. Three area-specific transportation impact fees also
apply to portions of the city where high traffic volumes occur. These areas include
San Antonio/West Bayshore, Stanford Research Park/El Camino Real CS Zone, and
Charleston/Arastradero. A separate fee is charged in the Downtown Parking
Assessment District (for parking impacts).
The goals, policies and programs contained in this Element seek to mitigate the
impacts of future development, protect Palo Alto residents’ quality of life, and
address region-wide transportation issues. In order to implement these policies and
programs, the City is committed to evaluating additional funding options on a
regular basis. Regular evaluation and assessment of transportation-related needs and
resources can help ensure that Palo Alto achieves these goals.
STREETS
All modes of transportation in Palo Alto depend to some degree on the street
network. The City’s street network has remained essentially unchanged since the
1960s, except for projects along the Sand Hill Road corridor., yet overall traffic
volumes have increased. In the future, prioritizing multimodal transportation
solutions and traffic calming can support a shift towards alternative transportation,
thus increasing walking and biking on local streets.
PALO ALTO COMPREHENSIVE PLAN
TRANSPORTATION
Source: City of Palo Alto, 2012.
MAP T-4
EXISTING PEDESTRIAN FACILITIES
Downtown Inset
Existing Facilities and Programs | 3-5
Alta Planning + Design
Chapter 3
Map 3-2: Existing Pedestrian Conditions
Existing Facilities and Programs | 3-5
Alta Planning + Design
Chapter 3
Map 3-2: Existing Pedestrian Conditions
Existing Facilities and Programs | 3-5
Alta Planning + Design
Chapter 3
Map 3-2: Existing Pedestrian Conditions
PALO ALTO COMPREHENSIVE PLAN
TRANSPORTATION ELEMENT
REVISED COUNCIL DRAFT – JULY 19, 2016ANUARY 31, 2017 T-13
STREET CLASSIFICATIONS
Palo Alto’s streets are categorized according to purpose, design and the volume of
traffic they carry. This street hierarchy is defined below and is illustrated on Map T-5.
Improvements to road surfaces, curbs, crossings, signage, landscaping, and sight
lines must make streets safer for vehicles, but must consider the needs and safety of
pedestrians and cyclists as well.
ROADWAY AND INTERSECTION IMPROVEMENTS
[To be updated when Preferred Alternative and associated roadway
improvements are identified]. Efficient traffic circulation on major streets is a
priority in Palo Alto, as is minimizing the diversion of through-traffic onto local
residential streets. Intersections are the most constricted points on the network and
tend to see the highest levels of congestion during the peak morning and afternoon
commute periods. For that purpose, several key intersections and roadways
segments, as shown on Map T-6, have been identified for monitoring.
A challenge is to balance the free flow of traffic with the safety of pedestrians and
cyclists of all abilities, as well as with residents’ desire to maintain low traffic speeds
on residential arterials. Most future improvements will be made within existing rights-
of-way at intersections and will provide for traffic calming or relatively small increases
in roadway capacity by adding turn lanes or making other intersection . adjustments.
Intersection improvements are planned only at the major intersections noted below.
PALO ALTO’S STREET HIERARCHY
Freeway: Major roadway with controlled access; devoted exclusively to
traffic movement, mainly of a through or regional nature.
Expressway: Major roadway with limited access to adjacent properties;
devoted almost exclusively to traffic movement, mainly serving through-
traffic.
Arterial: Major roadway mainly serving through-traffic; takes traffic to and
from expressways and freeways; provides access to adjacent properties.
Residential Arterial: Major roadway mainly serving through-traffic; takes
traffic to and from express- ways and freeways; provides access to adjacent
properties, most of which are residential properties located on both sides of
the roadway with direct frontages and driveways on that roadway.
Collector: Roadway that collects and distributes local traffic to and from
arterial streets, and provides access to adjacent properties.
Local: Minor roadway that provides access to adjacent properties only.
Vehicle miles traveled (VMT) is an
indicator of the level of traffic on the
roadway system by motor vehicles. VMT is
estimated for the given period of time - for
example daily or annually. The estimate is
based on both traffic volume counts and
roadway length. As population increases,
so does VMT; however, other factors that
contribute to a rise in VMT include
economic growth, relatively affordable
auto travel costs, tourism, low levels of
public transit, and sprawl. As the amount
of auto travel increases, the time wasted
on congested roadways, the energy used
by the vehicles and total costs of auto
travel increase accordingly.
PALO ALTO COMPREHENSIVE PLAN
TRANSPORTATION ELEMENT
T-14 REVISED COUNCIL DRAFT – JULY 19, 2016ANUARY 3MAY 1, 2017
Additional turning lanes and other related changes are proposed at the following
major intersections in Palo Alto: [list to be determined based on final decisions about
the locations of future development]
Most future improvements will be made within existing rights-of-way and will
provide for traffic calming or relatively small increases in roadway capacity by adding
turn lanes or making other intersection adjustments. Other, specific local and
regional transportation investments envisioned are:
Full grade separations for automobiles, pedestrians, and bicyclists at Caltrain
crossings,
Retrofit/improvements to existing grade separated Caltrain crossings for
pedestrians and bicyclists at California Avenue and University Avenue,
Construction of new pedestrian and bicycle grade separated crossing of Caltrain
in South Palo Alto and in North Palo Alto,
Pedestrian and bicycle improvements derived from the 2012 Bicycle and
Pedestrian Plan as amended over time,
The US 101/Adobe Creek bicycle and pedestrian bridge,
El Camino Real intersection and pedestrian safety/streetscape improvements,
Downtown mobility and safety improvements,
Geng Road extension to Laura Lane,
Middlefield Road corridor improvements.
Other agencies, including Santa Clara County, VTA, and Caltrans, are responsible for
other major roadway projects that will directly affect Palo Alto streets, but are not
under the jurisdiction of the City. Specifically:
The County will implement elements of Expressway Plan 2040 in or near Palo
Alto, including widening Oregon-Page Mill with HOV lanes and a
bicycle/pedestrian trail between I-280 and Foothill Expressway, intersection
improvements along Oregon-Page Mill between Porter and Hansen and at El
Camino Real, reconfiguration of the interchange at I-280/Oregon-Page Mill
Road, and an ITS/signal system Countywide,
US 101 southbound improvements from San Antonio Road and Rengstorff
Avenue.
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PR EL I MI N A R Y D RA F T MA P T -5R O A D W A Y N E T W O R K
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
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PALO ALTO COMPREHENSIVE PLAN
TRANSPORTATION ELEMENT
T-16 REVISED COUNCIL DRAFT – JULY 19, 2016ANUARY 3MAY 1, 2017
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MA P T - 6
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Source: City of Palo Alto, 2016; PlaceWorks, 2016.Park/Open Space
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1. Middlefield/University2. Middlefield/Embarcadero3. Middlefield/Oregon (CMP)4. Middlefield/Colorado5. Middlefield/Charleston6. Middlefield/San Antonio (CMP)7. El Camino Real/Alma/Sand Hill (CMP)8. El Camino Real/University/Palm9. El Camino Real/Embarcadero (CMP)10. El Camino Real/Page Mill (CMP)11. El Camino Real/Arastradero/Charleston (CMP)12. El Camino Real/San Antonio (CMP) (Mountain View)13. Santa Cruz/Sand Hill Road (Menlo Park)14. Foothill/Junipero Serra/Page Mill (CMP)15. Foothill/Arastradero (CMP)16. Alma/Charleston17. Arboretum/Quarry18. San Antonio/Charleston(CMP)19. Embarcadero/East Bayshore20. University/Woodland (East Palo Alto)
Palo Alto Monitored Intersections
(CMP) denotes Santa Clara County VTA Congestion Management Plan intersection.
PALO ALTO COMPREHENSIVE PLAN
TRANSPORTATION ELEMENT
T-18 REVISED COUNCIL DRAFT – JULY 19, 2016ANUARY 3MAY 1, 2017
These investments would be complemented by local and regional investments in
transit and transportation demand management, as well as parking supply and
parking management.
LEVEL OF SERVICE &AND VEHICLE MILES TRAVELLED
Motor vehicle lLevel of sService (LOS) is a way of measuring traffic congestion based
on average control delay per vehicle, and in some analyses, based on the ratio of the
volume of traffic to the capacity of the road. LOS A is a free-flowing condition for cars
and LOS F is an extreme congestion condition, with traffic volumes at or over
capacity. LOS definitions for signalized intersections are shown in Table T-1. Policies
in the Element ensure that Intersections in the city are subject to its LOS standards,
and the City will continue to use vehicular LOS at local intersections when evaluating
development applications, including a project’s potential contribution to cumulative
overall LOS.
TABLE T-1 SIGNALIZED INTERSECTION LOS
DEFINITIONS BASED ON AVERAGE DELAY
LOS
Average Control Delay
Per Vehicle (Seconds)
A 10.0 or less
B 10.1 to 20.0
C 20.1 to 35.0
D 35.1 to 55.0
E 55.1 to 80.0
F Greater than 80.0
Source: Transportation Research Board, 2000 Highway Capacity Manual.
Washington, D.C. 2000.
VEHICLE MILES TRAVELED (VMT)
Transportation planning analyses used by cities to describe traffic and roadway and
intersection operation, both for infrastructure planning and for new development
projects, are evolving away from the traditional Vehicle Level of Service (LOS) metric
towards a multi-modal perspective based on Vehicle Miles Traveled (VMT). California
Senate Bill 743, passed in 2013, requires impacts from new development on
transportation network performance to be viewed through a filter that promotes the
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reduction of greenhouse gas emissions, the development of multi-modal
transportation networks, and a diversity of land uses. This evolution acknowledges
the fact that designing roadways primarily to serve vehicle travel is not a sustainable
transportation approach and can have negative consequences for those travelling by
other modes. This Bill will also shift the State away from LOS as the metric for
evaluating transportation impacts under the California Environmental Quality Act
(CEQA) and towards use of vehicle miles travelled (VMT) or VMT per capita. This
shift recognizes that prioritizing the free flow of cars over any other roadway user
contradicts State goals to reduce GHGs.
Utilizing both LOS and VMT metrics provides the City with a comprehensive view to
address traffic and to reflect its sustainability goals. Shorter and fewer vehicle trips to,
from and within Palo Alto become an important measure in relation to greenhouse
gas emissions. While LOS describes local-level impacts at a specific location, VMT
describes network-wide impacts by measuring the number of miles traveled by
motor vehicles within an area. VMT per capita divides the total amount of VMT by
the population living and working in a community. In the Bay Area, a common
pattern in jobs-rich communities like Palo Alto is that community-wide VMT is high
because many workers must travel into the City from far away, and not all can meet
their needs by using transit. VMT per capita is used to account for changes in
population and employment over time and helps measure how far people travel to
get to work, get home, and meet daily needs, while adjusting for increases in VMT
due only to increased housing or employment. In summary, VMT can help identify
how new development projects may influence accessibility and emissions, while
vehicle LOS can still help identify impacts on users of the local roadway network.
Together, these measures can inform efforts to reduce commute lengths and
enhance the availability of alternative transportation options.
MULTIMODAL LEVEL OF SERVICE
Some communities are exploring how to apply the concept of level of service, which
has focused exclusively on cars for the past several decades, to transit, bikes, and
pedestrians in order to better understand and support alternative modes of
transportation. Multi-modal level of service (MMLOS) is another analytical approach
endorsed by policies in this Element, and applies the concept of LOS to all modes of
travel, including transit, bikes, and pedestrians as well as cars and trucks. Within
Santa Clara County, in response to State laws that require planning for complete
streets and deprioritize vehicular LOS as a metric for transportation analysis, VTA is
developing guidelines for multi-modal transportation planning to include in all
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transportation studies, and the City of Palo Alto will have an opportunity to
participate in this effort. One possible outcome could be the adoption of metrics for
safety, convenience, and delay for transit, bicycles, and pedestrians similar to the
LOS standards the City has adopted for motor vehiclescars.
RAIL CORRIDOR
Palo Alto is bisected by the Caltrain rail corridor, which provides important
connections to the wider Bay Area; however, it also creates a significant barrier to
local connectivity and circulation. Policies in this Element address these issues as well
as safety and desired service expansions to better serve the California Avenue
Caltrain station.
GRADE SEPARATION
To enhance local connectivity, improve pedestrian and bicycle circulation, and
increase safety, the City of Palo Alto is also committed to pursuing grade separation
for pedestrians, bicyclists, and automobiles at Caltrain crossings within the City and is
considering conceptual grade separation alternatives for a portion of the Caltrain
right-of-way. Recent studies have focused on three existing at-grade crossings at
West Charleston Road, Meadow Drive, and Churchill ,Avenue; however there is
significant interest in analyzing and pursuing grade separations at Alma Street as
well, in addition to possible establishment of a “quiet zones” for the near term.
Trenching the Caltrain corridor from San Antonio to the Oregon Expressway is the
City’s preferred option for grade separation. Although the potential cost of this
option to reroute existing creeks and add infrastructure pump stations would be
higher than the option of submerging the roadway at key intersections, grade
separation would prevent the taking of existing homes and partial property
acquisitions, elimination of turning movements, and would result in less visual
impacts at each intersection than submerging the roadway at key intersections due
to the large footprint of the submerged segments.
NEIGHBORHOOD IMPACTS
Most Palo Alto streets are bordered by residential land uses. Citizens’ concerns
reflect chronic problems like speeding, regional traffic on local streets, commuter
shortcutting, and too much motor vehicle traffic. The City has designated some
streets as residential arterials to recognize that they carry large volumes of through-
traffic but also have residential uses on both sides of the street. The objective is to
address the desires of residents of these streets who would like to have slower
The Traffic Infusion on Residential
Environment (TIRE) index is a measure of
the effect of traffic on the safety and
comfort of human activities, such as
walking, cycling, and playing on or near a
street and on the freedom to maneuver
vehicles in and out of residential
driveways. The TIRE index scale ranges
from 0 to 5 depending on daily traffic
volume. An index of 0 represents the least
infusion of traffic and 5 the greatest, and
thereby, the poorest residential
environment.
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speeds, safer conditions for bicycles and pedestrians, and aesthetic improvements.
This must be done economically and without appreciably reducing traffic capacity or
diverting traffic onto other local neighborhood streets.
Additionally, to address community concerns, the City has developed a Traffic
Intrusion on Residential Environments (TIRE) methodology that estimates resident
perception of traffic impacts based on anticipated average daily traffic growth.
Although not required under the California Environmental Quality Act or pursuant to
VTA guidelines, the City of Palo Alto uses the TIRE index to measure the impact of
traffic on residents along a street.
TRAFFIC CALMING
Policies in this Element support tTraffic calming, which refers to projects that make
permanent, physical changes to streets to slow traffic and/or reduce volumes, thus
improving their safety and addressing residents’ concerns. Traffic calming measures
can reduce speeds and return some through-traffic from local streets and collector
streets to nearby arterials, something that may be of increased importance given the
advent of technology that helps drivers navigate local streets to avoid congestion.
Traffic calming also includes education and enforcement measures that promote
changes in driver behavior. Where warranted by traffic conditions and residents’
desires, Palo Alto’s policy is to implement physical changes to local and collector
streets that slow traffic close to the 25 miles per hour (mph) residential speed limit.
Physical changes implemented are safe and take into account the needs of all road
users. Some examples of traffic calming measures include:
Curb and Sidewalk Design. In many of the areas of Palo Alto built since World
War II, an integral curb and sidewalk design was used, resulting in sidewalks
immediately next to traffic lanes. Adding planting pockets and street trees would
promote pedestrian use and also provide visual cues to drivers to reduce
speeds. Curb extensions at intersections and crosswalks can also slow traffic
speeds.
Reducing and Narrowing LanesLane Reductions. In commercial areas, it may
be feasible to reduce the number of lanes for through-traffic with- out losing too
much traffic handling capacity. In these areas, curb lanes are often not very
useful for through-traffic since they may be blocked or slowed by cars turning
into and out of driveways and parking spaces. In other areas, narrowing the
travel lanes is a technique that can be used to reduce motor vehicle
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speeds.Street Closures. Street closures are effective at eliminating through-
traffic, especially when safety issues are involved. They may be a necessary
design element for a bicycle boulevard or transit mall, but closures can often be
controversial because they disrupt the traditional neighborhood street grid, and
may shift traffic to adjacent streets.
RoundaboutsTraffic Circles. A traffic circle is a raised island in the center of an
intersection that helps reduce speeding by forcing drivers to slow. Traffic circles
have been shown to dramatically reduce collisions and are considered more
bicycle-friendly than traditional two- or four-way stops controls. Because they
don’t require stops, traffic circles also reduce local air and noise pollution from
stop–and-go traffic, and offer opportunities for added landscaping and tree
planting. Traffic circles are already used in Palo Alto’s residential neighborhoods,
and the 2012 Bicycle + Pedestrian Transportation Plan calls for greater use of
traffic circles, particularly along bicycle boulevards.
PARKING
Effectively managingA comprehensive parking supply and demand can strategy is an
important component of the overall effort to reduce traffic congestion, protect the
livability of residential neighborhoods, and support local businesses. The overarching
objective of the strategy is to provide parking as needed to sustain economic vitality
in the commercial centers and employment districts, while over time implementing
initiatives to reduce motor vehicle parking demand and provide new bicycle parking
facilities.
MOTOR VEHICLE PARKING
The parking-related policies strategy articulated in this plan articulate involves a
phased approach. In the near-term, the focus will be on optimizing the use of
existing parking spaces and conducting needs assessments, which establish a
baseline for adequate parking in each of the city's commercial centers and
employment districts under current conditions, and creating parking management
strategies, which optimize the use of existing parking spaces. In the mid- to long-
term, as it becomes easier and more convenient to walk, bike, rideshare and use
transit, and as the effectiveness of parking management programs can be measured,
the focus will shift to recalibrating parking supply. Bridging between these two
phases will require identifying performance standards for transit, walking, ridesharing
and bicycling that represent the thresholds at which point mechanisms to phase in
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updated parking requirements and reduce space allocated to parking over time
should be considered.
Parking management can be done in a number of ways, including optimizing use of
existing spaces and incentivizing use of alternatives to the automobile. Technology is
central to optimizing the use of existing spaces, and the City is already committed to
installing parking guidance systems that give drivers real-time information on the
number and location of available spaces, and to developing clear logos and
wayfinding signage to help people access public parking efficiently. Sshared parking
arrangements that allow different users to use the same spaces at alternate times -
for example, employees in the daytime and restaurant patrons at night - can also
optimize the use of existing spaces. Improving transit service, providing safe,
convenient bicycle parking and enhancing the pedestrian realm can incentivize the
use of transportation modes that don't require vehicle parking, while charging for
parking makes it more likely that people will carpool, take transit, walk or bike.
The City has already begun to pilot new programs and gauge the effectiveness of
parking management strategies in coordination with other transportation demand
management initiatives. This plan seeks to set the stage for continued innovation
and experimentation in both the public and private sectors to develop effective
solutions. Over time, carefully managing parking supply can significantly reduce the
number of parking spaces needed, moderate traffic congestion, reduce the costs of
providing parking, encourage transit and sustainable transportation choices and
support Palo Alto’s goals for livable neighborhoods.
BICYCLE PARKING
Policies also support As the City continues to implement its parking strategy over the
mid- to long-term of this plan, bicycle use will be promoted by increasing the
number of safe, attractive, and well-designed bicycle parking spaces in Palo Alto, as
well as bike share hubs and bike stations at Caltrain stations. Priority areas of the city
for enhanced bike parking include heavily travelled mixed-use areas, commercial
centers, employment districts, recreational/cultural facilities, multi-modal
transportation facilities and ride share stops. In addition, the City will identify ways to
incentivize the provision of bicycle parking near existing shops, services and places of
employment in collaboration with private sector partners, and in City-owned parking
lots and rights of ways. Further actions will be guided through implementation of the
2012 Bicycle + Pedestrian Transportation Plan.
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ROAD SAFETY
Traffic safety will continue to be among the City’s top priorities in the future. City
officials, city employees and community members are committed to working
together to build better and safer streets, educate the public on traffic safety, enforce
traffic laws, and adopt policy changes that save lives. The City is undertaking a
comprehensive traffic safety program, and partners with Palo Alto Unified School
District and the Palo Alto Parent Teacher Association (PTA) on a Safe Routes to
School Program that encourages families to walk, bike, take transit and use other
alternatives to driving to school more often and to reduce the risk of collisions for
students.
A new approach to roadway safety that has proven to be successful in substantially
reducing traffic-related fatality rates without compromising mobility is the Vision Zero
Initiative, which is being implemented in cities throughout the US and
Europe.developed in Sweden. At the core of this approach is the pursuit of concept
of shifting responsibility for safety from roadway users to the design of the roadway
system. While local conditions and traffic culture in Palo Alto are different than in
Sweden, the Vision Zero Initiative could potentially offer ideas and lessons for Palo
Alto to draw on in pursuing the goal of roadway safety for all users.
TRANSIT-DEPENDENT COMMUNITIESY
Young people, seniors, people with low incomes, and people with limited mobility
all have special transportation needs. Palo Alto is committed to providing reasonable
accessibility and mobility for all members of the community, including those who
depend on transit because they cannot drive or choose not to.
SENIORS
As the baby boomer generation (i.e., those born between 1946 and 1964) ages,
more and more people will forego driving or become unable to drive. Without
proper access to affordable transit or families, friends, and/or neighbors who can
provide rides, seniors face an increased risk of social and physical isolation. VTA
offers seniors 65 and over a discounted Regional Transit Connection Card. In
addition, Outreach, a non-profit organization that serves seniors and people with
disabilities, offers transportation services in Santa Clara County, including a
subsidized transit pass and subsidized taxi rides. While Outreach provides an
important service to the community, there is a daily cap on the number of rides
offered so all user requests may not be accommodated.
Households that don’t own a car are
dependent on transit to reach work,
including evening, nighttime, and
weekend shifts, and to meet other daily
needs. At the same time, in a 2016 survey
of workers in downtown Palo Alto, 40
percent of service workers reported that
they would take transit to work if it was less
expensive. Improving mobility for low-
income residents and workers could mean
both expanding transit and shuttle service
to off-peak hours and supporting
programs to provide free or discounted
transit passes.
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PEOPLE WITH LIMITED MOBILITY
VTA’s paratransit services are also provided by Outreach. Riders may reserve
paratransit trips from one to three days in advance, between 8:00 a.m. and 5:00 p.m.
for service the next day. However, paratransit services are limited to a ¾-mile
corridor around the VTA bus routes and light rail stations. For travel outside of the
service area, customers must arrange a transfer to the paratransit operator.
UNIVERSAL DESIGN
The policies in this Element support these and other efforts to serve transit
dependent communities and also embrace the principle of universal design for
mobility is to achieve roadways and sidewalks that can accommodate people of all
abilities and all users, including automobiles, pedestrians, bicyclists. Examples of
universal design to support people with disabilities include placing pedestrian push
buttons at wheelchair level, audible pedestrian crossing systems, sidewalk curb
ramps, including wider ramps for strollers, increasing pedestrian crossing times,
sidewalk widths of 6 six feet or greater, roadway and sidewalk materials that reduce
slipping and add stability, minimizing driveway crossings and obstructions, and
avoiding steep grades and slopes.
ECONOMIC DISADVANTAGE
In 2012, HUD considered a household (family of four) earning $75,700 or less and
living in Santa Clara County to be low-income, $52,500 or less to be very low-
income, and $31,500 or less to be extremely low income. As described in the
adopted Housing Element (2014-2023), approximately 21 percent of households in
Palo Alto are low, very low, or extremely low income; 2 percent do not own a car.1
These households rely on transit to reach work, including evening, nighttime and
weekend shifts, and to meet other daily needs. Expanding access to public
transportation services in Palo Alto during off-peak hours, including the Shuttle, is
one strategy that can improve accessibility and mobility.
REGIONAL COLLABORATION
Increasing population and traffic congestion over the past 20 years have required an
increased emphasis on regional solutions to transportation issues. A regional
approach is needed to avoid local solutions that simply shift the problem elsewhere
or produce unintended results. Transportation facilities like Caltrain or the Bayshore
1 U.S Census Bureau, 2014 ACS 5-year estimate.
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Freeway need to be managed on a regional basisly. Palo Alto is actively participating
with other communities and Caltrain on Caltrain electrification, formally known as
the Peninsula Corridor Electrification Project (PCEP), which will replace existing diesel
trains with electric ones along the 51-mile Caltrain corridor and enable Caltrain to
both increase the number of trains it runs and run longer trains. While these changes
offer benefits to regional commuters, they will are also expected to increase crossing
delays and congestion at rail crossings until they are grade separatedat local
intersections in Palo Alto.
Congestion Management Plan
Palo Alto has been an active participant in tThe Santa Clara County VTA Congestion
Management Program (CMP). The CMP is the primary mechanismvenue for
transportation planning in the County and the conduit for most transportationand
funding. Palo Alto representatives also participate on VTA advisory committees as
well as leadership in numerous other Bay Area regional bodies affecting
transportation, including the Metropolitan Transportation Commission (MTC),
Association of Bay Area Governments (ABAG), and the Bay Area Air Quality
Management District (BAAQMD), and the California Department of Transportation
(Caltrans).
HOV LANES
High Occupancy Vehicle (HOV) lanes and express lanes are regional used as a traffic
management strategiesy aimed at to reduce reducing congestion on freeways and
improvinge air quality. HOV lanes are reserved at peak travel times or longer for the
exclusive use of vehicles with a driver and one or more passengers; although
motorcycles and some alternative fuel and transit vehicles may also use the lanes.
There are about 174 miles of freeway carpool lanes in Santa Clara County, including
84 miles along US 101 between the Palo Alto and Morgan Hill.
GOALS, POLICIES, AND PROGRAMS
SUSTAINABLE TRANSPORTATION
GOAL T-1 Create a sustainable transportation system, complemented
by a mix of land uses, that emphasizes walking, bicycling,
use of public transportation, and other methods to reduce
greenhouse gas emissions and the use of single occupancy
motor vehicles.
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REDUCING RELIANCE ON SINGLE-OCCUPANT VEHICLES
Policy T-1.1 Take a comprehensive approach to reducing single-occupant vehicle
trips by involving those who live, work and shop in Palo Alto in
developing strategies that make it easier and more convenient not to
drive.
Policy T-1.2 Collaborate with Palo Alto employers and business owners to develop,
implement and expand comprehensive programs like the
Transportation Management Association (TMA) to reduce single-
occupant vehicle commute trips, including through incentives.
Create a long-term education program to change Program T1.2.1
the travel habits of residents, visitors, shoppers, and
workers by informing them about transportation
alternatives, incentives, and impacts. Work with the
Palo Alto Unified School District and with other
public and private interests, such as the Chamber of
Commerce and Commuter Wallet partners, to
develop and implement this program.
Formalize the City’s Transportation Demand Program T1.2.2
Management (TDM) program requirements by
establishing an ordinance standards and guidelines
that outlines when TDM should be applied to new
development should be required to prepare and
implement a TDM Plan, whatand the performance
standards. metrics are required, and how
compliance will be measured and enforced.
Require regular monitoring/reporting and provide
for enforcement with meaningful penalties for non-
compliance. The ordinance should also:
Establish a list of acceptable effective TDM
measures that include transit usepromotion,
prepaid transit passes, commuter checks, car
sharing, carpooling, parking cash-out,
bicyclingbicycle lockers and showers, shuttles
to Caltrain, walking, requiring TMA
membership, and education and outreach to
support the use of these modes.
Transportation Demand Management (TDM)
The term Transportation Demand
Management (TDM) encompasses a
coordinated set of strategies that are
designed to reduce the use of single
occupancy vehicles, and thereby reduce
both traffic and parking demand. TDM
programs include investments in alternative
transportation improvements; incentives for
local employees to take transit, walk, or bike;
parking management; and marketing. In
Palo Alto, the Transportation Management
Authority (TMA), an independent non-profit
organization that works collaboratively with
the City and the business community, is
responsible for coordinating TDM programs.
Transportation Demand Management
Strategies are also referenced under
Program T-5.2.3.
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Require TMA membership and Provide a
system for incorporating alternative measures
as new ideas for TDM are developed.
Establish a mechanism to monitor the success
of TDM measures and track the cumulative
reduction of peak period motor vehicle
tripsthrough the following methods:. TDM
measures should achieve the following
reduction in peak period motor vehicle trips,
with a focus on single-occupant vehicle trips.
Reductions should be based on the rates
included in the Institute of Transportation
Engineers’ Trip Generation Manual for the
appropriate land use category:
- 45 percent reduction in the Downtown
district
- 35 percent reduction in the California
Avenue area
- 30 percent reduction in the Stanford
Research Park
- 30 percent reduction in the El Camino
Real Corridor
- 20 percent reduction in other areas of the
city
Establish a system that allows new
development to achieve “no net new vehicle
trips” by reducing trips to the site through
TDM measures, and then Allow contracting
between developments or organizations so
that trips to/from one site can be offsetting
remaining trips via by enforceable agreements
with other entities or organizations like the
TMA that are committed to reducing existing
vehicle tripsreductions on another for a net
reduction within Palo Alto.
Require new development projects to pay a
Transportation Impact Fee which will be used
to offset or reduce impacts to congestion
citywide to the extent feasible through transit
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services, shuttles, similar public services,
bicycle lanes, and other capital improvements
that enhance multimodal travel.
Evaluate the performance of pilot programs Program T1.2.3
implemented by the Palo Alto Downtown
Transportation Management Association and
consider pursue expanding expansion from
Downtown to California Avenue and other areas of
the city as when appropriate.
Site City facilities near high-capacity transit and Program T1.2.4
rReview revise existing regulations, policies, and
programs to identify revisions that encourage
telecommuting, satellite office concepts, and work-
at-home options.
REDUCING GREENHOUSE GAS EMISSIONS
Policy T-1.3 Reduce GHG and pollutant emissions associated with transportation
by reducing vehicle miles traveled and per-mile emissions through
increasing transit options and through the use of zero-emission
vehicle technologies to meet City and State goals for GHG reductions
by 2030.
Develop an electric vehicle promotion program that Program T1.3.1
identifies policy and technical issues, barriers and
opportunities to the expansion of electric vehicles.
Use low-emission vehicles for the Palo Alto Free Program T1.3.2
Shuttle and wWork with transit providers, including
SamTrans and VTA, to encourage the adoption of
electric, fuel cell or other zero emission vehicles.
Also work with private bus and shuttle providers,
delivery companies, and ride services.
Policy T-1.4 Ensure that electric vehicle charging infrastructure, including
infrastructure for charging e-bikes, is available citywide.
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Review Update the Zoning Ordinance Code and Program T1.4.1
update as needed to ensure compatibility with the
electric vehicle infrastructure ordinance
requirements., including parking technology
improvements such as vehicle lifts and electronic
monitoring.
Further encourage the installation of facilities that Program T1.4.2
support alternative fuel vehicles by pPeriodically
reviewing requirements for electric and plug-in
vehicle infrastructure in new construction. Consider
and periodically review requirements for electric
and plug-in infrastructure for remodels. Consider
costs to the City, including identifying payment
options.
INCREASING TRANSIT USE
Policy T-1.5 Improve and support Encourage innovation and expanded transit
access to regional destinations, multi-modal transit stations,
employment centers and commercial centers, including those within
Palo Alto through the use of efficient public and/or private transit
options such as rideshare services, on-demand local shuttles, and
other first/last mile connections.
Collaborate with transit providers, including Program T1.5.1
Caltrain, bus operators and rideshare companies, to
develop first/last mile connection strategies that
boost the use of transit and shuttle service for local
errands and commuting. Focus on connections
to/from major corridors such as East and West
Bayshore Road, Alma Street, El Camino Real and
Embarcadero Road.
Use bike share to enhance first/last mile Program T1.5.2
connections and locate bike stations at transit hubs.
Continue to work with Caltrain, Amtrak, and public
bus operators to expand bicycle storage on public
transit vehicles and at transit hubs during both peak
and off-peak hours. [Bike share is covered in
Program T1.18.4, below, which also mentions
transit stations.]
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Policy T-1.6 Support efforts Advocate for transit providers to coordinate train, bus,
and shuttle schedules at multi-modal transit stations, and other transit
information centers, to enable efficient transfer among public transit
modes.
Policy T-1.7 Work to ensure public and private school commute patterns are
accommodated in the local transit system, including through schedule
and route coordination.
Policy T-1.8 Continue to encourage the provision of amenities such as seating,
lighting, and signage, including real-time arrival information, at bus
and shuttle stops and train stations to increase rider comfort, safety,
and convenience.
ENHANCING RAIL AND BUS SERVICE
Policy T-1.9 Support Caltrain modernization and electrification, capacity and
service enhancements and extension to Downtown San Francisco.
Policy T-1.10 Support Encourage continued enhancement of the Caltrain stations as
important transportation nodes for the city.
Collaborate with Stanford University, VTA, Caltrain Program T1.10.1
and other agencies Stanford University, per existing
agreements with the City, to explore station
improvementspursue improvements to the Palo
Alto Station/Transit Center area aimed at enhancing
the pedestrian experience and improving, including
maintenance and circulation and access
improvements for all modes, including direct access
to El Camino Real for transit vehicles.
Program T1.10.2 Work with Caltrain to address commuter parking
intrusion into surrounding neighborhoods. Prioritize
solutions such as shuttle services, considering
parking structures only as an option of last resort.
In collaboration with Caltrain and Stanford Research Program T1.10.2
Park, pursue expansion of study the feasibility of
baby bullet service to the California Avenue Caltrain
Station ,and creation of an enhanced transit center
at the Station, including connections to VTA bus
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service, the Palo Alto Free Shuttle, the Marguerite,
and other private shuttles serving the Research
Park. supplemented by connections from the
station to the Stanford Research Park, as a way to
incentivize use of transit by employees commuting
to jobs in the Research Park. Baby bullet trains
stopping at California Avenue should complement
baby bullets stopping at Palo Alto Station., and be
connected to shuttle routes and other first-mile/last-
mile solutions.
Policy T-1.11 Collaborate with transit agencies in planning and implementing
convenient, efficient, coordinated and effective bus service in Palo Alto
that addresses the needs of all segments of our population.
Strongly recommend that VTA maintain existing Program T1.11.1
service and coverage levels in Palo Alto.
Work with VTA to explore expand VTA express bus Program T1.11.2
service routes that would to serve the Stanford
Research Park, California Avenue, Stanford
University, and Downtown.
Study the feasibility of, and if warranted provide, Program T1.11.3
traffic signal prioritization for buses at Palo Alto
intersections, focusing first on regional transit
routes. Also, advocate for bus service
improvements on El Camino Real such as queue
jump lanes and curbside platforms.
SHUTTLE SERVICE, RIDESHARING AND FIRST/LAST MILE CONNECTIONS
Policy T-1.12 Encourage services that complement and enhance the transportation
options available to help Palo Alto residents and employees make
first/last mile connections and travel within the city for daily needs
without using a single occupancy vehicle, including shuttle, taxi and
ridesharing services.
Investigate a pilot program to subsidize a taxi, Program T1.12.1
rideshare, or transit program for Palo Altans to get
to/from dDowntown, including offering education
and incentives to encourage users.
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Policy T-1.13 Continue the Palo Alto Free Shuttle Program and work with partners to
enhance service by increasing frequency and prioritizing destinations
of value to the community, including health centers, parks, schools,
senior centers, and shopping areas and other places where residents
gather.
Evaluate theConduct a comprehensive study of the Program T1.13.1
shuttle system periodically in collaboration with
community members, people with special needs,
and PAUSD to:
Evaluate current routes and ridership;
Identify potential service improvements,
including new or modified routes; expanded
schedules that accommodate daytime,
evening, and weekend demand; facilitating
transit connections, and improvements to the
safety and appearance of shuttle stops;
Explore partnerships with other services that
could complement and supplement the Palo
Alto Shuttle;
Develop clear and engaging materials to
explain and promote shuttle use with the
purpose of reducing barriers to use; and
Establish a schedule for regular evaluation and
reporting to optimize shuttle system use and
effectiveness.
Policy T-1.14 Encourage employers to develop shared shuttle services to connect
employment areas with the multi-modal transit stations and City
amenities, and to offer employees education and information on how
to use shuttles.
BICYCLING AND WALKING
Policy T-1.15 Promote bicycle use as an alternative way to get to work, school,
shopping, recreational facilities and transit stops.
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Allocate funding for Continue regular surveys of Program T1.15.1
bicycle use across the city, by collecting bicycle
counts on important and potential bicycle corridors.
Consider marketing strategies, such as a recurring Program T1.15.2
Palo Alto Sunday Open Streets program of events,
potentially in coordination with local business
groups, which would include street closures and
programming.
Encourage private schools within the community to Program T1.15.3
develop Walk and Roll Maps as part of
Transportation Demand Management strategies to
reduce vehicle trips.
Support Participate in local and regional Program T1.15.4
encouragement events such as Palo Alto Walks &
and Rolls, Bike to Work Day, and Bike Palo Alto!
that encourage a culture of bicycling and walking as
alternatives to single occupant vehicle trips.
Policy T-1.16 Require new office, commercial, and multi-family residential
developments to provide improvements that improve bicycle and
pedestrian connectivity as called for in the 2012 Bicycle + Pedestrian
Transportation Plan.
Policy T-1.17 Increase cooperation with surrounding communities and other
agencies to establish and maintain off-roadway bicycle and pedestrian
paths and trails that are integrated with creek, utility, railroad rights-of-
way and green spaces in a manner that helps enhance and define the
community and avoids environmental impacts.
Policy T-1.18 Provide facilities that encourage and support bicycling and walking.
Adjust the street evaluation criteria of the City's Program T1.18.1
Pavement Management Program to ensure that
areas of the road used by bicyclists are maintained
at the same standards as, or at standards higher
than, areas used by motor vehicles. Include bicycle
and e-bike detection in intersection upgrades.
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Prioritize investments for enhanced pedestrian Program T1.18.2
access and bicycle use within Palo Alto and to/from
surrounding communities, including by
incorporating improvements from related City
plans, for example the 2012 Bicycle + Pedestrian
Transportation Plan and the Parks, Trails & Open
Space Master Plan, as amended, into the cCapital
Iimprovements planProgram.
Increase the number of east-west pedestrian and Program T1.18.3
bicycle crossings along across Alma Street and the
Caltrain corridor, particularly south of Oregon
Expressway.
Encourage the use of bike sharing, and support the Program T1.18.4
provision of bike share stationsrequired
infrastructure throughout Palo Alto, especially at
adjacent to transit stations and stops, job centers,
community centers, and other destinations.
Improve amenities such as seating, lighting, bicycle Program T1.18.5
parking, street trees, public art, and interpretive
stations along bicycle and pedestrian paths and in
City parks to encourage walking and cycling and
enhance the feeling of safety.
Policy T-1.19 Regularly maintain off-roadway bicycle and pedestrian paths, including
sweeping, weed abatement, and surface maintenance.
Program T1.19.1 Develop cooperative programs with the City and
businesses that promote good community
stewardship by keeping sidewalks clean in the
University Avenue/Downtown and California
Avenue business districts, and other centers.
[Redundant with Land Use Program L-4.3.3 [L74]
regarding business improvement districts and
maintenance/beautification of commercial centers.]
Policy T-1.20 Maintain pedestrian- and bicycle-only use of alleyways Downtown and
in the California Avenue area where appropriate . to provide
connectivity between businesses and parking and transit stops, and
consider public art in the alleyways as a way to encourage walking.
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MONITORING PROGRESS
Policy T-1.21 Continue to measure the effectiveness of the City’s transportation
network to make better decisions on transportation issues.
Collect, analyze and report transportation data Program T1.21.1
through surveys and other methods, to evaluate
implementation of related ongoing policies on a
regular basis. Also Ttrack progress on build-out of
the 2012 Bicycle + Pedestrian Transportation Plan
network.
Policy T-1.22 Monitor VMT per capita and citywide greenhouse gas (GHG)
emissions from mobile sources as a measure of progress toward
sustainability goalsthe City’s goal of reducing GHG 80% below 1990
levels by 2030.
Policy T-1.23 Monitor and publicly report on the level of service at critical
intersections (as shown on Map T-5) on a regular basis and consider
additional intersections to add to this list to monitor the effectiveness
of the City's growth management policies. Also monitor multi-modal
level of service for arterials and residential arterials.
FUNDING IMPROVEMENTS
Policy T-1.24 Evaluate transportation funding measures periodically for ongoing
transportation improvements that will help mitigate the impacts of
future development and protect residents’ quality of life. When other
sources are unavailable, continue to fund improvements, operations
and maintenance through the general fund.
As part of the effort to reduce traffic congestion, Program T1.24.1
regularly evaluate the City’s current Transportation
Impact Fee and modify as needed to implement
transportation projects, and consider new fees that
new development projects must pay to the City for
use in reducing motor vehicleroadway trips
congestion impacts to the extent feasible through
the provision of transit services, shuttles,
carpool/rideshare incentives, bicycle lanes, and
similar programs and capital improvements.
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Policy T-1.25 Collaborate with adjacent communities to ensure that Palo Alto and its
immediate neighbors receive their fair share of regional transportation
funds, proportional to the need and demand for transportation
improvements within these communities to address region-wide
transportation issues.
In collaboration with regional agencies and Program T1.25.1
neighboring jurisdictions, identify and pursue
funding for rail corridor improvements and grade
separation.
Policy T-1.26 Collaborate with public interest groups as well as federal, State, and
local governments to study and advocate for transportation regulatory
changes, such as an increase in the gasoline tax.
TRAFFIC DELAY AND CONGESTION
GOAL T-2 Decrease delay, congestion, and vehicle miles travelled
with a priority on our worst intersections and our peak
commute times, including school traffic.
Policy T-2.1 Working with congestion management authorities including the Valley
Transportation Authority (VTA) and the City/County Association of
Governments of San Mateo County (C/CAG), implement traffic
management strategies and technologies, such as signal coordination,
centralized traffic control, red-light, and speed enforcement cameras,
and real-time travel information, to reduce traffic congestion in and
around Palo Alto.
Implement computerized traffic management Program T2.1.1
systems to improve traffic flow when feasible.
Implement a program to monitor, coordinate, and Program T2.1.2
optimize traffic signal timing a minimum of every
five two years along arterial and residential arterial
streets.
Policy T-2.2 As part of the effort to reduce traffic congestion, seek ongoing funding
and engage employers to operate and expand support the
establishment and operation of Transportation Management
Associations (TMAs) to address transportation and parking issues as
appropriate in the City’s employment districts.
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Work in partnership with the Downtown Palo Alto Program T2.2.1
TMA and Stanford University to aggregate data and
realize measurable reductions in single-occupant
vehicle commuting to and from Downtown and in
the Stanford Research Park.
Policy T-2.3 Use vehicular motor vehicle lLevel of sService (LOS) at signalized
intersections to evaluate the potential impact of proposed projects,
including contributions to cumulative congestion. Use signal warrants
and other metrics to evaluate impacts at unsignalized intersections.,
when evaluating development applications.
When adopting new CEQA significance thresholds Program T2.3.1
for compliance with SB 743 (2013), also adopt
desired standards for Regularly update multi-modal
levels of service (MMLOS), which includes motor
vehicle LOS, at signalized intersections for use in
evaluating the consistency of a proposed project
with the Comprehensive Plan.regulations
Policy T-2.4 Consistent with the principles of Complete Streets adopted by the City,
work to achieve and maintain acceptable levels of service for transit
vehicles, bicyclists, pedestrians and automobiles on roads in Palo Alto.
Program T2.4.1 Establish and maintain thresholds for acceptable
multi-modal levels of service for intersections in
Palo Alto. [Merged into Program T2.3.1 on MMLOS,
above.]
Revise protocols for reviewing office, commercial, Program T2.4.1
and multi-family residential development proposals
to evaluate multi-modal level of service and identify
gaps in the low stress bicycle and pedestrian
network. for transit vehicles, bicyclists, and
pedestrians.
SCHOOLS AND CHILDCARE FACILITY CONGESTION
Policy T-2.5 Encourage the location of childcare facilities near major employment
hubs to reduce traffic congestion associated with child pick-up and
drop-off.
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Policy T-2.6 Work with PAUSD to ensure that decisions regarding school
assignments are analyzed to reduce peak period motor vehicle trips to
and from school sites.
Policy T-2.7 Work with the PAUSD to resolve traffic congestion issues associated
with student drop-off and pick-up. Address pedestrian and bicycle
access, circulation, and related issues such as coordinating bell
schedules on City rights-of-way adjacent to schools and on PAUSD
property.
STREETS
GOAL T-3 Maintain an efficient roadway network for all users.
EFFICIENT CIRCULATION
Policy T-3.1 Maintain a hierarchy of streets that includes freeways, expressways,
arterials, residential arterials, collector streets, and local streets,
balancing the needs of all users in a safe and appropriate manner.
Program T3.1.1 Identify desired routes for transit, cycling and
regional traffic as well as priorities for study and
investments. [Redundant with other policies and
programs. See Programs T1.11.1, T1.11.2, and
T1.5.1 stating the City’s desires on transit routes.
Cycling routes are established in the adopted 2012
BPTP, and traffic calming programs and policies
address desired routes for regional traffic.]
Policy T-3.2 Enhance connections to, from and between parks, community centers,
recreation facilities, libraries and schools for all users.
Policy T-3.3 Avoid major increases in single occupant vehicle street capacity when
constructing or modifying roadways unless needed to remedy severe
congestion or critical neighborhood traffic problems. Where capacity is
increased, balance the needs of motor vehicles with those of
pedestrians and bicyclists.
Policy T-3.4 Regulate truck movements and large commercial buses in a manner
that balances the efficient movement of trucks and buses while
preserving the residential character of Palo Alto's street system.
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Program T3.4.1 Evaluate the feasibility of changes to Palo Alto’s
through truck routes and weight limits to consider
such issues as relationship to neighboring
jurisdictions, lower weight limits, increased number
of routes, and economic and environmental
impacts.
STREET DESIGN AND MODIFICATION PROJECTS
Policy T-3.5 When constructing or modifying roadways, plan for use of the
roadway space by all users.
Update the comprehensive roadway design Program T3.5.1
standards and criteria to be Continue to use best
practices in roadway design that are consistent with
cComplete sStreets principles best practices and the
Urban Forest Master Plan, focusing on bicycle and
pedestrian safety and multi-modal uses. Consider
opportunities to incorporate best practices from the
National Association of City Transportation Officials
guidelines for urban streets and bikeways, tailored
to the Palo Alto context.
Establish procedures for considering the effects of Program T3.5.2
street design on emergency vehicle response time.
Policy T-3.6 Consider pedestrians, and bicyclists, e-bikes, and motorcycles when
designing road surfaces, curbs, crossings, signage, landscaping, and
sight lines.
Policy T-3.7 Encourage pedestrian-friendly design features such as sidewalks, street
trees, on-street parking, gathering spaces, gardens, outdoor furniture,
art, and interesting architectural details.
Program T3.7.1 Conduct a study of Palo Alto roadways to identify
needed pedestrian improvements, including on El
Camino Real, Alma Street and other locations.
Policy T-3.8 Add planting pockets with street trees to increase the tree canopy,
provide shade, calm traffic and enhance the pedestrian realm.
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Policy T-3.9 Identify and establish performance measures for the road network in
Palo Alto to support city-wide sustainability efforts, includinSupport
city-wide sustainability efforts by preserving and enhancing g the
treestreet canopy where feasible within the public right of way,
consistent with the Urban Forest Management Plan, as amended.
Policy T-3.10 Participate in the design and implementation of comprehensive
solutions to traffic problems near Stanford Shopping Center and
Stanford Medical Center.
Support increased public transit, traffic Program T3.10.1
management and parking solutions to ensure safe,
convenient access to and from the Stanford
Shopping Center/ Medical Center area.
Implement and monitor Development Agreement Program T3.10.2
traffic mitigations at Stanford Medical Center.
Provide safe, convenient pedestrian, bicycle, and Program T3.10.3
transit connections between the Stanford Shopping
Center/Medical Center areas and housing along the
Sand Hill Road/Quarry Road corridors to Palo Alto
StationTransit Center, Downtown Palo Alto, and
other primary destinations.
Study Pursue extension of Quarry Road for transit, Program T3.10.4
pedestrians and bicyclists to access the Palo Alto
Station Transit Center from El Camino Real. Also
study the feasibility of another pedestrian and
bicycle Caltrain underpass of Caltrain at Everett
Street.
Policy T-3.11 Consider the objectives of the Grand Boulevard Initiative and the
South El Camino Boulevard Design Guidelines when designing
roadway and pedestrian improvements along El Camino Real. Pursue
wide sidewalks, pedestrian friendly building design, and planting
pockets with street trees. [Last sentence deleted for consistency with
January 30 Council motion on a similar Land Use Element policy.]
Policy T-3.11Policy T-3.12 Coordinate roadway improvements with other transportation
and utility infrastructure improvements such as sewer and water.
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Policy T-3.12Policy T-3.13 Work with Caltrans, Santa Clara County and VTA to improve
east and west connections in Palo Alto and maintain a circulation
network that binds the city together in all directions.
Policy T-3.13Policy T-3.14 Continue to prioritize the safety of school children in street
modification projects that affect school travel routes, including during
construction.
RAIL CORRIDOR
Policy T-3.14Policy T-3.15 Pursue grade separation of rail crossings along the rail
corridor as a City priority, including a below-grade alignment between
San Antonio and the Oregon Expressway for both high speed rail and
Caltrain.
Undertake studies and Program T3.14.1Program T3.15.1
outreach necessary to advance grade separation of
Caltrain to become a “shovel ready” project and
strongly advocate for adequate State, regional, and
federal funding for design and construction of
railroad grade separations.
Conduct a study to evaluate Program T3.14.2Program T3.15.2
the implications of grade separation on bicycle and
pedestrian circulation.
Policy T-3.15Policy T-3.16 Keep all four existing at-grade rail crossings open to motor
vehicles, pedestrians, and bicyclist, consistent with results of a focused
circulation study and a context sensitive alternatives analysis. vehicular
traffic.
Policy T-3.16Policy T-3.17 Until grade separation is completed, improve existing at-grade
rail crossings to ensure the highest feasible level of safety along the
corridor and provide additional safe, convenient crossings.
Complete Commission a Palo Program T3.16.1Program T3.17.1
Alto Avenuen Alma Street crossing study to identify
potential near-term safety and accessibility
opportunities to improvements., including
implementation of a “quiet zone.” [Quiet zones are
addressed in the Noise section of the Natural
Environment Element. See Program N6.12.2.]
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Work with Caltrain to ensure Program T3.16.2Program T3.17.2
that the rail tracks are safe and secure with
adequate fencing and barriers. Incorporate
neighborhood input in planning and
implementation of crossing improvements.
Policy T-3.18 Improve safety and minimize adverse noise, vibrations and visual
impacts of operations in the Caltrain rail corridor on adjoining districts,
public facilities, schools and neighborhoods with or without the
addition of High Speed Rail.
NEIGHBORHOOD IMPACTS
GOAL T-4 Protect local neighborhood streets that contribute to
neighborhood support residential character and provide a
range of local transportation options.
Policy T-4.1 Keep all neighborhood streets open as a general rule.
Policy T-4.2 Implement Continue to construct traffic calming measures to slow
traffic on local and collector residential streets, and prioritize traffic
calming measures for safety over congestion management.
Identify specific improvements that can be used to Program T4.2.1
discourage drivers from using local, neighborhood
streets to bypass traffic congestion on arterials.
Periodically review evaluate residential areas for Program T4.2.2
traffic impacts, and use the results of that review
evaluation to prioritize traffic calming measures.
Policy T-4.3 Maintain the following roadways as residential arterials, treated with
landscaping, medians, and other visual improvements to distinguish
them as residential streets, in order to improve safety:
Middlefield Road (between San Francisquito Creek and San
Antonio Road)
University Avenue (between San Francisquito Creek and
Middlefield Road)
Embarcadero Road (between Alma Street and West Bayshore
Road)
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East and West Charleston Road/Arastradero Roads (between
Miranda Avenue and Fabian Way).
Use landscaping and other improvements to Program T4.3.1
establish clear “gateways” at the points where the
Oregon Expressway, University Avenue and
Embarcadero Road transition from freeways to
neighborhoods.
Policy T-4.4 Minimize the danger of increased commercial ingress/egress adjacent
to major intersections, and noticeable increases in traffic from new
development in residential neighborhoods, through traffic mitigation
measures.
Policy T-4.5 Require project proponents to eEmploy the Traffic Impact on
Residential Environments (TIRE) analysis methodology to measure
potential street impacts from proposed new development of all types
in residential neighborhoods.
Policy T-4.6 Require new residential development projects to implement best
practices for street design, stormwater management and green
infrastructure.
MOTOR VEHICLE AND BICYCLE PARKING
GOAL T-5 Encourage attractive, convenient, efficient and innovative
parking solutions for all users.
MANAGING PARKING SUPPLY
Policy T-5.1 All new development projects should meet parking demand
generated by the project, without the use of on-street parking,
consistent with the established parking regulations. As demonstrated
parking demand decreases over time, parking requirements for new
construction should decrease.
For each commercial center and employment Program T5.1.1
district in Palo Alto, conduct a parking needs
assessment in consultation with business owners,
employers and local residents to establish a
baseline for parking need. Evaluate the need to
update parking standards in the municipal code,
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based on local conditions, different users’ needs
and baseline parking need. Allow the use of parking
lifts for Office/R&D and multi-family housing as
appropriate.
Consider reducing parking requirements for retail Program T5.1.2
and restaurant uses as a way to encourage new
businesses and the use of alternative modes.In
parallel with each parking needs assessment,
establish performance standards which represent
the conditions that must be met before parking
requirements for new development can be
reduced. In establishing performance standards,
consider metrics such as vehicle trips, transit
frequency, transit capacity and bicycle parking.
Work with stakeholders in each commercial center Program T5.1.3
and employment district to monitor conditions and
determine the appropriate timing for revisions to
parking requirements.
Study the feasibility of unbundled parking for office, Program T5.1.4
commercial, and multi-family residential
developments (including senior housing
developments) that are well-served by transit and
demonstrated walking and biking connections,
including senior housing developments.
Policy T-5.2 Continue to implement a comprehensive program of parking supply
and demand management strategies citywide to optimize the use of
existing parking spaces.
Use technology to help identify parking availability Program T5.2.1
and make it easy to pay any parking fees.
Program T5.2.2 In the Downtown, work with the TMA to ,
implement pilot projects to that test the
effectiveness of strategies for such as employees,
such as transportation programs, including reduced
cost transit passes and ridesharing programs.
Review pilot project results and consider expanding
to other areas of the city, such as California Avenue.
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[Almost identical to Program T-1.2.3, above, which
addresses evaluating and expanding TMA pilot
programs.]
Consider applying a Study and implement pricing Program T5.2.2
strategiesy to address for public parking in
commercial districts, taking into consideration both
employee parking demand and the needs of
retailers and customers. Use pricing to encourage
short term parking on street, long term parking in
parking garages, and the use of alternative modes
of transportation. shortages citywide that is flexible
in response to demand and supply. Conduct a
feasibility study that considers the potential impact
of a pricing strategy for retail and commercial areas,
and potential benefits for TDM.
Implement Council-adopted recommendations Program T5.2.3
from the parking management study for the
Downtown area, which included address the
feasibility of removing color-coded parking zones,
and dynamic pricing and management policies to
prioritize short-term parking spaces closest to the
commercial core for customers, garage parking for
employees, and neighborhood parking for
residents.
Policy T-5.3 Work with merchants to when designatinge dedicated employee (long
term) parking areas in public parking lots and garages.
Policy T-5.4 Encourage shared parking where complementary demand timing is
demonstrated in order to optimize parking spaces in commercial
centers and employment districts.
Explore incentives to encourage privately initiated Program T5.4.1
shared parking among individual property owners
when developments have excess parking that can
be available for other businesses to use.
Policy T-5.5 Minimize the need for employees to park in and adjacent to
commercial centers, employment districts and schools.
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PARKING INFRASTRUCTURE AND DESIGN
Policy T-5.6 Strongly encourage the use of below-grade or structured parking
instead of surface parking for new developments of all types while
minimizing negative impacts including groundwater and landscaping
where feasible.
Policy T-5.7 Require new or redesigned parking lots to optimize pedestrian and
bicycle safety. [L165] [Moved from Land Use Element May 1 Council
Draft.]
Policy T-5.8 Promote vehicle parking areas designed to reduce stormwater runoff,
increase compatibility with street trees and add visual interest to
streets and other public locations. Encourage the use of photovoltaic
panel or tree canopies in parking lots or on top of parking structures
to provide cover, consistent with the Urban Forest Master Plan.
Study the feasibility of retrofitting City-owned Program T5.8.1
surface parking lots to implement best
management practices for stormwater management
and urban heat island mitigation, including green
infrastructure, permeable pavement and reflective
surfaces.
Identify incentives to encourage the retrofit of Program T5.8.2
privately owned surface parking areas to
incorporate best management practices for
stormwater management and urban heat island
mitigation as well as incentives for the provision of
publicly accessible bicycle parking in privately
owned lots.
Update City requirements regarding trees and other Program T5.8.3
landscaping that capture and filter stormwater
within surface parking lots to take advantage of new
technology. [L178] [Moved from Land Use Element
May 1 Council Draft.]
Policy T-5.9 Promote safety for pedestrians in City-owned parking lots by adopting
standards for landscaping, signage, walkways and lighting that reduce
crime and ensure a safe and orderly flow of traffic.
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Policy T-5.10 Encourage the use of adaptive design strategies in new parking
facilities in order to facilitate reuse in the future if and when conditions
warrant.
RESIDENTIAL PARKING
Policy T-5.11 Protect residential areas from parking impacts of nearby businesses. In
residential neighborhoods, work with neighborhood associations to
prioritize residential street parking and minimize spill over parking
from commercial centers and employment districts.
Coordinate with neighborhood groups to evaluate Program T5.11.1
the need for a residential parking permit program
in areas outside Downtown Palo Alto and College
Terrace without existing programs.
BICYCLE PARKING
Policy T-5.12 To promote bicycle use, increase the number of safe, attractive and
well-designed bicycle parking spaces available in the city, including
spots for bicycle trailers, prioritizing heavily travelled areas such as
commercial and retail centers, employment districts,
recreational/cultural facilities, multi-modal transit facilities and ride
share stops for bicycle parking infrastructure.
Work with private sector partners, including Program T5.12.1
employers, merchants, schools, and community
service providers, to identify ways to incentivize the
provisionprovide more of bicycle parking, including
e-bike parking with charging stations, near existing
shops, services and places of employment.
Consider installing Install secure electronic bike Program T5.12.2
lockers such as the BikeLink system, at high theft
locations, including transit stations and parking
garages.
Assess the need to provide additional bicycle Program T5.12.3
parking in City-owned parking lots and rights-of-
way.
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ROAD SAFETY
GOAL T-6 Provide a safe environment for motorists, pedestrians, and
bicyclists on Palo Alto streets.
Policy T-6.1 Continue to make safety the first priority of citywide transportation
planning. Prioritize pedestrian, bicycle, and automobile safety over
motor vehicle level-of-service at intersections and motor vehicle
parking.
Follow the principles of the safe routes to schools Program T6.1.1
program to implement traffic safety measures that
focus on Safe Routes to work, shopping,
downtown, community services, parks, and schools.
Develop, distribute and aggressively promote maps Program T6.1.2
and apps showing of safe routes to work, shopping,
community services, parks and schools within Palo
Alto in collaboration with stakeholders, including
PAUSD, major employers, TMAs, local businesses
and community organizations.
Address pedestrian safety along Alma Street Program T6.1.3
between University Avenue Embarcadero Road and
Lytton Street.
Address pedestrian safety on shared-use paths Program T6.1.4
through the use of signs, pavement markings, and
outreach to users, encouraging them to be safe and
courteous. bicycle and pedestrian trails.
Policy T-6.2 Pursue the goal of zero severe injuries and roadway fatalities oin Palo
Alto city streets within 10 years.
Regularly collect severity and location data on Program T6.2.1
roadway collisions for all modes of travel, including
fatalities and severe injuries, and use this data to
make roadway design decisions. In collaboration
with Santa Clara County, develop an up-to-date,
public database for this information.
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Policy T-6.3 Continue to work with Caltrain to increase safety at train crossings,
including improving gate technology, and signal coordination.
Policy T-6.4 Continue the Safe Routes to School partnership with PAUSD and the
Palo Alto Council of PTAs.
Periodically update Consider the Adopted School Program T6.4.1
Commute Corridors Network and adopted “Walk
and Roll” maps when reviewing development
applications and to include updated school
commute routes. Ensure these routes are prioritized
for safety improvements and considered in making
land use and transportation planning decisions.
Incorporate these requirements into City code
when feasible.
Establish standards and procedures for maintaining Program T6.4.2
safe bicycling routes, including signage for warnings
and detours during construction projects.
In collaboration with PAUSD, pProvide adult Program T6.4.3
crossing guards at school crossings that meet
adopted criteriaestablished warrants.
Policy T-6.5 Support PAUSD adoption of standard Safe Routes to School policies
and regulations that address the five E’s of education, encouragement,
enforcement, engineering, and evaluation.
Policy T-6.6 Use engineering, enforcement, and educational tools to improve traffic
safety on City roadways.
Periodically evaluate safety on roadways and at Program T6.6.1
intersections and enhance conditions through the
use of signal technology and physical changes.
Consider the construction of traffic circles for
improved intersection safety.
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TRANSPORTATION ELEMENT
REVISED COUNCIL DRAFT – JULY 19, 2016ANUARY 3MAY 1, 2017 T-51
Continue to provide educational programs for Program T6.6.2
children and adults, in partnership with community-
based educational organizations, to promote the
safe use of bicycles, including the City-sponsored
bicycle education programs in the public schools
and the bicycle traffic school program for juveniles.
Work with PAUSD and employers to promote Program T6.6.3
roadway safety for all users, including motorized
alternatives to cars and bikes such as mopeds and
e-bikes, through educational programs for children
and adults.
Complete a mobility and safety study for downtown Program T6.6.4
Palo Alto, looking at ways to improve circulation
and safety for all modes.
Identify and construct implement safety Program T6.6.5
improvements for pedestrian underpasses,
including on Embarcadero Road.
Improve pedestrian crossings by creating protected Program T6.6.6
areas and better pedestrian and traffic visibility. Use
a toolbox including bulb outs, small curb radii, high
visibility crosswalks, and landscaping.
Program T6.6.7 Establish standards and procedures with Utilities
and Public Works to maintain safe bicycling routes
and adequately and safely sign warnings and
detours during construction projects. [Duplicate of
Program T6.4.2, above.]
Establish a program to educate residents to keep Program T6.6.7
sidewalks clear of parked cars, especially on narrow
local streets in neighborhoods with rolled curbs.
Survey for compliance annually.
Policy T-6.7 Use appropriate technology to monitor and improve circulation safety
throughout the City.
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TRANSPORTATION ELEMENT
T-52 REVISED COUNCIL DRAFT – JULY 19, 2016ANUARY 3MAY 1, 2017
Evaluate the performance of safety improvements Program T6.7.1
and identify methods to encourage alternative
transportation modes.
Policy T-6.8 Vigorously and consistently enforce speed limits and other traffic laws,
including for both motor vehicle and bicycle traffic.
TRANSIT- – DEPENDENT COMMUNITY
GOAL T-7 Provide mobility options that allow people who are transit
dependent to reach their destinations.
Policy T-7.1 Support mobility options for all groups in Palo Alto who require transit
for their transportation.
Expand transportation opportunities for transit-Program T7.1.1
dependent riders by supporting a variety of
methods, such as by funding discounts for taxi
fares, rideshare services, and transit, by
coordinating transit systems to be shared by
multiple senior housing developments, and by
maintaining supporting a volunteer program to
expand the supply of drivers, creating a database of
volunteer drivers, and other transit options.
Coordinate with social service agencies and transit Program T7.1.2
agencies to fill gaps in existing transportation routes
and services accessible to transit-dependent riders
no matter their means and design new bus routes
that enable them to access those services.
Pursue expanded evening and night time bus Program T7.1.3
service to enhance mobility for all users during off-
peak times.
Policy T-7.2 Utilize the principles of Universal Design, and local and State design
standards, to guide the planning and implementation of transportation
and parking improvement projects to ensure the needs of community
members with limited mobility, including some seniors and people
with disabilities, are addressed.
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Policy T-7.3 Continue to partner with transit providers, including VTA, to support
demand-responsive paratransit service for eligible participants in Palo
Alto and maintain existing paratransit services, particularly where bus
service is discontinued. Emphasize service quality and timeliness when
contracting for paratransit services.
Policy T-7.4 Collaborate with transit and shuttle providers including VTA, AC
Transit, SamTrans, Stanford Marguerite Shuttle, Palo Alto Free Shuttle,
Dumbarton Express Bus Service and Caltrain in the provision of
service that is accessible to seniors and people with disabilities.
Policy T-7.5 Support transit providers in implementing or continuing reduced fare
or no fare voucher systems for selected populations, including seniors
and people with disabilities.
Policy T-7.6 Encourage transit service providers to provide subsidized transit
passes for low income riders and other transit-dependent
communities.
REGIONAL COLLABORATION AND COORDINATION
GOAL T-8 Influence the shape and implementation of regional
transportation policies and technologies to reduce traffic
congestion and greenhouse gas emissions.
Policy T-8.1 Engage in regional transportation planning and advocate for specific
transit improvements and investments, such as Caltrain service
enhancements and grade separations, Dumbarton Express service,
enhanced bus service on El Camino Real with queue jumping and
curbside platforms, HOV/HOT lanes, and additional VTA bus service.
Policy T-8.2 Participate in regional planning initiatives for the rail corridor and
provide a strong guiding voice.
Policy T-8.3 Collaborate effectively with and engage in regional partnerships and
solutions with a range of stakeholders, including regional agencies,
neighboring jurisdictions and major employers, on issues of regional
importance such as traffic congestion, reduced reliance on single-
occupant vehicles, and sustainable transportation.
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TRANSPORTATION ELEMENT
T-54 REVISED COUNCIL DRAFT – JULY 19, 2016ANUARY 3MAY 1, 2017
Continue to participate in regional efforts to Program T8.3.1
develop technological solutions that make
alternatives to the automobile more convenient and
thereby contribute to reducing congestion.
Policy T-8.4 Coordinate with local, regional agencies, and Caltrans to support
regional efforts to maintain and improve transportation infrastructure
in Palo Alto, including the Multi-Modal Transit Center.
Policy T-8.5 Support the efforts of the Metropolitan Transportation Commission
(MTC) to coordinate transportation planning and services for the Mid-
Peninsula and the Bay Area that emphasize alternatives to the
automobile. Encourage MTC to base its Regional Transportation Plan
(RTP) on compact land use development assumptions.
Policy T-8.6 Support Advocate for efforts by Caltrans and the Valley Transportation
Authority to reduce congestion and improve traffic flow on area
existing freeway facilities consistent with Statewide GHG emissions
reduction initiatives.
Support Advocate for provision of a new Program T8.6.1
southbound entrance ramp to Highway 101 from
San Antonio Road, in conjunction with the closure
of the southbound Charleston Road on-ramp at the
Rengstorff Avenue interchange in Mountain View.
Encourage Advocate for VTA to improved Program T8.6.2
connectivity to transit to serve workers who live in
the South Bay and work in Palo Alto.
Policy T-8.7 Support the application of emerging freeway information, monitoring,
and control systems that provide non-intrusive driver assistance and
reduce congestion.
Policy T-8.8 Where appropriate, support the conversion of existing traffic lanes to
exclusive bus and high-occupancy vehicle (HOV) lanes or
Express/HOT lanes on freeways and expressways, including the
Dumbarton Bridge, and the continuation of an HOV lane from
Redwood City to San Francisco.
Policy T-8.9 Support State and federal legislation to reduce motor vehicle
emissions, noise, and fuel consumption.
PALO ALTO COMPREHENSIVE PLAN
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Policy T-8.10 Support plans for intra-county and transbay transit systems that link
Palo Alto to the rest of Santa Clara County and adjoining counties.
Ensure that these systems and enhancements do not adversely impact
the bay.
Work with regional transportation providers, Program T8.10.1
including BART and Caltrain, to improve
connections between Palo Alto and the San
Francisco International Airport and Norman Y.
Mineta San Jose International Airport.
Policy T-8.11 Support regional plans to complete development of the Bay Trail and
Bay-to-Ridge Trail.
Policy T-8.12 Support the development of the Santa Clara County Countywide
Bicycle System, and other regional bicycle plans.
Identify and improve bicycle connections to/from Program T8.12.1
neighboring communities in Santa Clara and San
Mateo counties to support local trips that cross city
boundaries. Also advocate for reducing barriers to
bicycling and walking at freeway interchanges,
expressway intersections, and railroad grad
crossings.
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T-56 REVISED COUNCIL DRAFT – JULY 19, 2016ANUARY 3MAY 1, 2017
LAND USE AND
COMMUNITY DESIGN
LAND USEREVISED COUNCIL DRAFT – NOVEMBER 28MAY 1, 20176 L-1
3
This revised Council draft element reflects revisions in response to Council direction
received on January 30, 2017, including revisions to improve the organization of the
Element and eliminate redundancies.
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 and services in Palo Alto neighborhoods and districts, 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.
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.
PALO ALTO COMPREHENSIVE PLAN
LAND USE AND COMMUNITY DESIGN ELEMENT
L-2 LAND USE REVISED COUNCIL DRAFT – NOVEMBER 28MAY 1, 20176
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 and Urban Environment and Safety
Element is 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
NATURAL ENVIRONMENT
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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Stanford
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EmersonStreet
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Source: Esri, DigitalGlobe, GeoEye, Earthstar Geographics, CNES/Airbus DS, USDA, USGS, AEX, Getmapping, Aerogrid, IGN, IGP, swisstopo, and the GIS User Community
MA P L- 1
P A L O A L T O A E R I A L V I E W
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
0 1 2 Miles
Source: City of Palo Alto, 2013; ESRI, 2016; PlaceWorks, 2016.
Railroads
City Boundary
Sphere of Influence
PALO
ALTO
PALO ALTO COMPREHENSIVE PLAN
LAND USE AND COMMUNITY DESIGN ELEMENT
L-4 LAND USE REVISED COUNCIL DRAFT – NOVEMBER 28MAY 1, 20176
REGIONAL PLANNING
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
EARLY HISTORY
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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UniversityAvenue
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Stanford
Lands
AlmaStreet
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EmersonStreet
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MA 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
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
0 1 2 Miles
Source: City of Palo Alto, 2013; USGS, 2010; NHD 2013; ESRI, 2010; Tiger Lines, 2010; Stanford University, 2000; PlaceWorks, 2014.
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 Stations
^_
PALO ALTO COMPREHENSIVE PLAN
LAND USE AND COMMUNITY DESIGN ELEMENT
L-6 LAND USE REVISED COUNCIL DRAFT – NOVEMBER 28MAY 1, 20176
CITY DEVELOPMENT
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 DEVELOPMENT
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.
SUSTAINABILITY 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
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
PALO ALTO COMPREHENSIVE PLAN
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LAND USE REVISED COUNCIL DRAFT – NOVEMBER 28MAY 1, 20176 L-7
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.
RESIDENTIAL NEIGHBORHOODS
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
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
PALO ALTO COMPREHENSIVE PLAN
LAND USE AND COMMUNITY DESIGN ELEMENT
L-8 LAND USE REVISED COUNCIL DRAFT – NOVEMBER 28MAY 1, 20176
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.
COMMERCIAL CENTERS
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:
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
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Source: City of Palo Alto, 2013; USGS, 2010; NHD 2013; ESRI, 2010; Tiger Lines, 2010; PlaceWorks, 2014.
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
0 0.5 1 Miles
MA P L - 3
C I T Y S T R U C T U R E
!Caltrain Stations
Sphere of Influence
City Boundary
Railroads
Park/Open Space
Regional Centers
1. University Avenue/Downtown
2. Stanford Shopping Center
Commercial Districts
1. South of Forest Area (SOFA)
2. California Avenue
3. Alma Village
1. Stanford Research Park
2. Stanford Medical Center
3. East Bayshore
4. San Antonio Road/Bayshore Corridor
"Ø
Mixed Use Areas
Employment Centersl
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Employment Districts
1. California Avenue
2. Town & Country Village
3. South El Camino Real
Multi-Neighborhood Centers"Ø
1. Charleston Center
2. Edgewood Plaza
3. Midtown
Neighborhood Centers"Ø
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PALO ALTO COMPREHENSIVE PLAN
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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.
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.
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.
EMPLOYMENT DISTRICTS
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,
PALO ALTO COMPREHENSIVE PLAN
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L-12 LAND USE REVISED COUNCIL DRAFT – NOVEMBER 28, 2016MAY 1, 2017
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. An
implementation program addresses the pace of new office/R&D development by
updating an existing ordinance establishing an annual limit on the amount allowed.
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.
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.
BUILDINGS
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
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Source: City of Palo Alto, 2013; USGS, 2010; NHD 2013; ESRI, 2010; Tiger Lines, 2010; PlaceWorks, 2014.
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
0 1 2 Miles
MA 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
Major View Corridors
k Primary Gateways
! !Scenic Routes in Palo Alto
!Caltrain Stations
Railroads
Park/Open Space
City Boundary
Sphere of Influence
PALO ALTO COMPREHENSIVE PLAN
LAND USE AND COMMUNITY DESIGN ELEMENT
L-14 LAND USE REVISED COUNCIL DRAFT –NOVEMBER 28 MAY 1, 20176
PALO ALTO COMPREHENSIVE PLAN
LAND USE AND COMMUNITY DESIGN ELEMENT
LAND USEREVISED COUNCIL DRAFT – NOVEMBER 28MAY 1, 20176 L-15
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.
HISTORIC RESOURCES
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 two historic districts: Ramona Street and Professorville.
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
buildings in the city have been rehabilitated and adaptively reused as office or
commercial spaces, including former single-family homes in and near downtown.
PUBLIC SPACES, STREETS, AND PARKING
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.
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Source: PlaceWorks, 2016; The City of Palo Alto, 2013.
0 1 2 Miles
*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
associated environmental review documents.
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
!Cultural or historic resource*
Highways
City Limit
Professorville
Historic District
Ramona StreetArchitectural District
PALO ALTO COMPREHENSIVE PLAN
LAND USE AND COMMUNITY DESIGN ELEMENT
LAND USEREVISED COUNCIL DRAFT – NOVEMBER 28MAY 1, 20176 L-17
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.
GATEWAYS
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.
URBAN FOREST
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.
PUBLIC ART
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.
PALO ALTO COMPREHENSIVE PLAN
LAND USE AND COMMUNITY DESIGN ELEMENT
L-18 LAND USEREVISED COUNCIL DRAFT –NOVEMBER 28MAY 1, 20176
UTILITIES 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 SOI with public services or infrastructure needs or deficiencies.
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.
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0 0.25 0.5 0.75 10.125
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Source: ESRI, 2010; Tiger Lines, 2010; USGS, 2010; NHD, 2013; City of Palo Alto, 2013; PlaceWorks, 2015.
Comprehensive Plan Land Use Designations
Residential
Single Family Res
Multi-Family Res
Multi-Family Res (w/Hotel Overlay)
Mixed UseCommercial
Hotel Commercial
Service Commercial
Neighborhood Commercial
Regional/Community CommercialBusiness/Industrial
Light Industrial
Research/Office Park
Other
SOFA II CAP
SOFA I CAP
School District Land
Major Institution/Special Facility
Streamside Open Space
Public Park
Open Space/Controlled Development
Public Conservation LandStanford University Land Use Designations
Academic Campus
Campus Residential - Low Density
Campus Residential - Moderate Density
Open Space/Field Research
Campus Open Space
Special Conservation
Lake/Reservoir
!Caltrain Stations
Urban Service Area
City Boundary
Sphere of Influence
Railroads
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
MA P L -6
C O M P R E H E N S I V E L A N D U S E D E S I G N A T I O N S
PALO ALTO COMPREHENSIVE PLAN
LAND USE AND COMMUNITY DESIGN ELEMENT
L-20 LAND USEREVISED COUNCIL DRAFT –NOVEMBER 28MAY 1, 20176
PALO ALTO COMPREHENSIVE PLAN
LAND USE AND COMMUNITY DESIGN ELEMENT
LAND USEREVISED COUNCIL DRAFT – MAY 1NOVEMBER 28, 20176 L-21
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.
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.
LAND USE DEFINITIONS
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.
Public 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: TheThis designation is intended to preserve and enhance
corridors of riparian vegetation along a natural 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 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/Controlled Development: Land having all the characteristics of open
space but upon which where some development may be allowed on private
properties, consistent with the preservation of open space. Open space amenities
PALO ALTO COMPREHENSIVE PLAN
LAND USE AND COMMUNITY DESIGN ELEMENT
L-22 LAND USEREVISED COUNCIL DRAFT – NOVEMBER 28MAY 1, 20176
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.
RESIDENTIAL
Single-Family Residential: Includes 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 as
well as conditional uses requiring permits such as churches and schoolsSpecific
areas may be zoned to allow second. 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 will range from 1 to 7 units per acre, but may rises to a
maximum of 14 units in areas on parcels where second units or duplexes are
allowed 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
by zoning may be allowed where measurable community benefits will be derived,
services and facilities are available, and the net effect will be compatible with the
overall Comprehensive Plan.
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.
PALO ALTO COMPREHENSIVE PLAN
LAND USE AND COMMUNITY DESIGN ELEMENT
LAND USEREVISED COUNCIL DRAFT – MAY 1NOVEMBER 28, 20176 L-23
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 2,000 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
performance standards requirements will be developed, including parking, to ensure
that a significant 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.
COMMERCIAL
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 some locations along El
Camino Real and Alma Street, residential and mixed use projects may also locate in
this category. Non-residential floor area ratios will range up to 0.4.
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. Non-retail uses such as medical and dental offices
may also locate in this designation. Examples include Stanford Shopping Center,
Town and Country Village, and University Avenue/Downtown. In some locations,
residential and mixed use projects may also locate in this category. Non-residential
floor area ratios range from 0.35 to 2.
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
PALO ALTO COMPREHENSIVE PLAN
LAND USE AND COMMUNITY DESIGN ELEMENT
L-24 LAND USEREVISED COUNCIL DRAFT – NOVEMBER 28MAY 1, 20176
San Antonio Road, El Camino Real, and Embarcadero Road northeast of the
Bayshore Freeway. Non-residential floor area ratios will range up to 0.4.
Mixed Use: This category includes Live/Work, Retail/Office, Residential/Retail and
Residen- tial/Office development. Its purpose is to increase the types of spaces
available for living and working to encourage a mix of compatible uses in certain
areas, and to encourage the upgrading of certain areas with buildings designed to
provide a high qualityThe Mixed Use designation is intended to promote pedestrian-
oriented street environment. Mixed Use may include permitted activities mixed
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 within separate buildings on adjacent to one another in the
same site or on nearby sites. Live/Work refers to one or more individuals
livinggeneral vicinity to foster a mix of uses that encourages people to live, work,
play, and shop in the same building where they earn their livelihood, usually in
professional or light industrial activities. Retail/Office, Resi- dential/Retail, and
Residential/Office provide other variations to Mixed Use with Retailclose proximity.
Most typically, mixed use developments have retail on the ground floor and
residences above. This category includes Live/Work, Retail/Office, Residential on
upper floors. Design standards will be developed to ensure that/Retail and
Residential/Office development is compatible and contributes to the character of the
street and neighborhood. Floor area ratios will range up to 1.15, although
Residential/ Retail and Residential/Office development located along transit corridors
or near multi-modal centers will range up to 2.0 FAR with up to 3.0 FAR possible in
areas resis- tant to revitalization.where higher FAR would be an incentive to meet
community goals such as providing affordable housing. The FAR above 1.15 will
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.
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. Floor area ratio will rangeFAR currently ranges up to 1.52.0 for the hotel
portion of the site. An implementation program indicates that the City will explore
increasing this FAR.
PALO ALTO COMPREHENSIVE PLAN
LAND USE AND COMMUNITY DESIGN ELEMENT
LAND USEREVISED COUNCIL DRAFT – MAY 1NOVEMBER 28, 20176 L-25
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, restaurants,
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 the conditional use permit process. In some locations,
residential and mixed-use projects may also locate in this category. Maximum
allowable floor area ratio ranges from 0.3 to 0.5, depending on site conditions.
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. Floor area
ratio will range up to 0.5.
INSTITUTIONAL
School District Lands: Properties owned or leased by public school districts and
used for educational, recreational, or other non-commercial, non-industrial purposes.
Floor area ratio 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.
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:
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.
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Major Institution/University Lands/Campus 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.
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.
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.
GOALS, POLICIES, AND PROGRAMS
LOCAL LAND USE AND GROWTH MANAGEMENT
GOAL L-1 A well-designed, compact and resilient city providing
residents and visitors with attractive neighborhoods, work
places, shopping districts, public facilities, and open spaces.
EXTENT OF URBAN CONCENTRATING DEVELOPMENT WITHIN THE URBAN SERVICE
AREA
Policy L-1.1 Continue current City policy limitingLimit 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 Baylands land northeast of Highway 101 as
open space. [Previous Policy L-1] [L1]
City staff will monitor Stanford development
proposals and traffic conditions within the Sand Hill
Road Corridor and annually report to the Planning
PALO ALTO COMPREHENSIVE PLAN
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Com- mission and City Council. [Previous Program
L-2a]
City staff will review development proposals within
the Airport Influence Area to ensure consistency
with the guidelines of the Palo Alto Airport Com-
prehensive Land Use Plan, and when appropriate,
will refer development proposals to the Santa Clara
County Airport Land Use Commission for re- view
and comment. [Previous Program L-2b]
MAINTAIN AND STRENGTHEN CITY CHARACTER
Policy L-1.2 Maintain and strengthen Palo Alto’s varied residential neighborhoods
while sustaining the vitality of its commercial areas and public facilities.
[Previous Policy L-4] [L2]
Policy L-1.3 Promote infill development in the urban service area that is
compatible with its surroundings and the overall Maintain the scale
and character of the city to ensure a compact, efficient development
pattern. Avoid land uses that are overwhelming and unacceptable due
to their size and scale. [(Previous Policy L-5 ) (PTC Policy L1.7) (Comp
Plan Draft EIR Mitigation Measure LAND-1)] [L3]
Review and change zoning regulations to promote
gradual transitions in the scale of development
where residential districts abut more intense uses.
[Previous Program L-4]
Establish new performance and architectural
standards that minimize nega- tive impacts
where land use transitions occur. [Previous
Program L-5]
Revise the City’s Neighborhood Commercial (CN)
and Service Commercial (CS) zoning
requirements to better address land use
transitions. [Previous Program L-6]
Evaluate changes in land use in the context of regional needs, overall
City welfare and objectives, as well as the desires of surrounding
neighborhoods. [Previous Policy L-7]
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Maintain and periodically review height and density
limits to discourage single uses that are
inappropriate in size and scale to the surrounding
uses. [Previous Program L-3]
Program L1.3.1 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. Work with these same
stakeholders to identify sites and facilitate
opportunities for below market rate housing and
housing that is affordable. [(PTC Program L1.7.10)
(Edited)] [L4]
Program L1.3.2 Review development standards applicable in areas
susceptible to flooding from sea level rise, including
east of Highway 101, West Bayshore and East
Meadow Circle, and the area east of San Antonio
Road and north of East Charleston, and update
requirements as needed to ensure that new
development is designed and located to provide
protection from potential flooding impacts. [(NEW
PROGRAM)(Comp Plan Draft EIR Mitigation
Measure GHG-3.)] [L6] Note: Moved to Safety
Element and combined with flooding/sea level rise
policies and programs. See Program [S69]
REGULATING LAND USE
Policy L-1.4 Regulate land uses in Palo Alto according to the land use definitions in
this Element and Map L-6. [NEW POLICY]
Policy L-1.5 Encourage land uses that address the needs of the community and
manage change and development to benefit the community. [NEW
POLICY] [L10]
Program L1.5.1 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,
PALO ALTO COMPREHENSIVE PLAN
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including improved code enforcement practices.
[NEW PROGRAM] [L11]
Policy L-1.6 Use coordinated area plans to guide development 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. [NEW POLICY] [L67]
REGIONAL COOPERATION
Policy L-1.7 Maintain an active active cooperative working relationship
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. [Previous
Policy L-2] [L7]
Program L1.7.1 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. [Previous Program L-1] [L8]
Policy L-1.8 Participate in regional strategies to address the interaction of jobs,
housing balance and transportation issues. [NEW POLICY] [L9]
GROWTH MANAGEMENT AND MONITORING
Policy L-1.9 Maintain a citywide cap of 1.7 million new square feet of office/R&D
development, exempting medical office uses in the 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. [Update of Previous Policy
L-8] [L15] and [L18]
Establish a system to monitor the rate of non-
residential development and traffic conditions
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L-30 LAND USEREVISED COUNCIL DRAFT – NOVEMBER 28MAY 1, 20176
related to both residential and non-residential
development at key intersections including those
identified in the 1989 Citywide Study and additional
intersections identified in the Comprehensive Plan
EIR. If the rate of growth reaches the point where
the citywide development maximum might be
reached, the City will reevaluate development
policies and regulations. [Previous Program L-7]
Limit new non-residential development in the
Downtown area to 350,000 square feet, or 10
percent above the amount of development
existing or approved as of May 1986. Reevaluate
this limit when non-residential development
approvals reach 235,000 square feet of floor
area. [Previous Program L-8]
Continue to monitor development, including the
effectiveness of the ground floor retail
requirement, in the University Avenue/
Downtown area. Keep the Planning Commission
and City Council advised of the findings on an
annual basis. [Previous Program L-9]
Program L1.9.1 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. [NEW PROGRAM] [L19]
Program L1.9.2 Update and extend the City’s interim annual limit of
50,000 square feet of new office/R&D development
in order to moderate the pace of growth in
commercial and mixed use areas. Consider
additional exemptions to the annual limit as part of
this update. [NEW POLICY] [L23]
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Policy L-1.10 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. [NEW POLICY] [L32]
FOSTERING A SENSE OF SUSTAINABLE COMMUNITY
GOAL L-2 An enhanced sense of “community” with development
designed to foster public life,and 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. [(Previous Policy L-10)(Comp Plan
Draft EIR Mitigation Measure AIR-1)] [L44]
Policy L-2.2 Promote increased compatibility, interdependence, and support
between 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. [(Previous Policy
L-11)(Comp Plan Draft EIR Mitigation Measure AIR-2d, LAND-5)] [L45]
Program L2.2.1 Consider siting Explore whether there are
appropriate locations to allow small-scale
neighborhood-serving retail facilities such as coffee
shops and corner stores in existing or new
residential areas. [(Previous Policy L-16) (Converted
to Program)] [L46]
Policy L-2.3 As a key component of a diverse, inclusive community, allow and
encourage a mix of housing types and sizes designed for greater
affordability, particularly smaller housing types, such as studios, co-
housing, cottages, clustered housing, accessory dwelling units, and
senior housing. [(Previous Policy L-13) (Combined with [L47], which is
also about encouraging small units/mix of types)] [L47] and [L60]
Create and apply zoning standards for Village Residential housing
proto- types. Develop design guidelines for duplexes, townhouses,
courtyard housing, second units, and small lot single family homes
that ensure that such housing is compatible with single family
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neighborhoods and other areas where it may be permitted.
[Previous Program L-13]
Create and apply zoning standards for Transit-Oriented Residential
housing prototypes, including consideration of minimum density
standards. Develop design guidelines that ensure that such
housing is compatible with the Univer- sity Avenue/Downtown and
California Avenue centers where it may be per- mitted. [Previous
Program L-14]
Policy L-2.4 Use a variety of strategies to stimulate housing. [NEW POLICY]
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. [NEW PROGRAM]
Program L2.4.2 Allow housing on the El Camino Real frontage of
the Stanford Research Park and at Stanford
Shopping Center, provided that adequate parking
and vibrant retail is maintained. [NEW PROGRAM]
Program L2.4.3 Explore multi-family housing elsewhere in Stanford
Research Park and near Stanford University Medical
Center (SUMC). [NEW PROGRAM]
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. [NEW PROGRAM] [L21]
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. [(NEW
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PROGRAM)(Comp Plan Draft EIR Mitigation
Measure LAND-1)] [L121]
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 only be used
for residential capacity. [NEW PROGRAM]
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. [NEW POLICY] [L55]
Program L2.5.1 Collaborate with PAUSD in exploring opportunities
to build housing that is affordable to school district
employees. [NEW PROGRAM] [L56]
Policy L-2.6 Enhance desirable characteristics in mixed use areas. Use the planning
and zoning process to create opportunities Create opportunities for
new mixed use development consisting of housing and retail.
[Previous Policy L-9] [L120]
Policy L-2.7 Support efforts to retain housing that is more affordable in existing
neighborhoods, including a range of smaller housing types. [NEW
POLICY] [L53]
Program L2.7.1 Review development standards to discourage the
net loss of housing units. [NEW PROGRAM] [L54]
Policy L-2.8 When considering infill redevelopment, work to minimize
displacement of existing residents. [NEW POLICY] [L57]
Program L2.8.1 Conduct a study to evaluate various possible tools
for preventing displacement of existing residents.
[NEW PROGRAM] [L58]
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. [NEW
PROGRAM] [L59]
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Policy L-2.9 Preserve ground-floor retail and limit the displacement of existing
retail from neighborhood centers. [NEW POLICY] [L124]
Policy L-2.10 Facilitate reuse of existing buildings. [Previous Program L 20] [NEW
POLICY] [L48]
Policy L-2.11 Encourage new development and redevelopment to incorporate
greenery and natural features through the use of features such as
green rooftops, pocket parks, plazas, and rain gardens. [(NEW POLICY)
(Combined with Previous Program C26)] [L49]
Policy L-2.12 Ensure that future development addresses potential risks from climate
change and sea level rise. [NEW POLICY] [L5]
RESIDENTIAL DISTINCT NEIGHBORHOODS
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.
NEIGHBORHOOD COMPATIBILITY
Policy L-3.1 Ensure that new or remodeled structures to beare compatible with the
neighborhood and adjacent structures.[(Previous Policy L-12) (Comp
Plan Draft EIR Mitigation Measures AES-1, LAND-1, LAND-2)] [L50]
Policy L-3.2 Preserve residential uses from conversion to office or short-term
rentals. [NEW POLICY] [L51]
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.
[NEW PROGRAM] [L52]
MIX OF HOUSING TYPES
Evaluate alternative types of housing that increase density and provide
more diverse housing opportunities. [(Previous Policy L-13) (Note:
Program H3.3.5 of the adopted Housing Element is to explore
modifications to development standards to further encourage second
unit development.)] [L60]
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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. [NEW
POLICY] [L61]
RESIDENTIAL DESIGN
Policy L-3.4 Design and arrange Ensure that new multi-family buildings, including
entries and outdoor spaces are designed and arranged so that each
unit development has a clear relationship to a public street. [Previous
Policy L-14] [L62]
Policy L-3.5 Avoid negative impacts of basement construction for single-family
homes on adjacent properties public resources and the natural
environment. [NEW POLICY] [L63]
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:
Land use issues. Evaluate the City’s policy of
excluding basements from the gross floor area
and maximum floor area ratio limits in the
zoning ordinance. Consider zoning revisions,
including greater setbacks, to limit basement
size and increase basement setbacks from
adjacent properties.
Impacts to the natural environment, such as
potential impacts to the tree canopy,
groundwater supply or quality, and soil
compaction.
Safety issues such as increased surface flooding,
increased groundwater intrusion with sea level
rise, emergency access and egress, or sewage
backflows. [NEW PROGRAM] [L64]
COMMERCIAL CENTERS
GOAL L-4 Inviting, pedestrian scale centers that offer a variety of retail
and commercial services and provide focal points and
community gathering places for the city’s residential
neighborhoods and employment districts.
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COMMERCIAL CENTERS AND MIXED USE AREAS
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. [(Previous Policy L-18)(Comp Plan Draft EIR Mitigation
Measure LAND-1)] [L65]
Establish a planning process for Centers that
identifies the desired character of the area, its role
within the City, the locations of public gathering
spaces, appropriate land uses and building forms,
and important street and pedestrian connections to
surrounding Residential Neighborhoods. [Previous
Program L-15]
Program L4.1.1 Evaluate the effectiveness of formula retail limits
adopted for California Avenue and consider
whether these limits should be applied in other
Centers. Develop incentives for local small
businesses where warranted. [NEW PROGRAM]
[L66]
Prepare a coordinated area plan for the South El
Camino corridor from Curtner Avenue to West
Charleston Road, as shown in the diagram below.
The plan should articulate a vision for the corridor
as a well-designed complete street with an
enhanced pedestrian environment including wider
sidewalks, increased building setbacks, public open
spaces, safe pedestrian crossings at key
intersections, trees and streetscape improvements.
Mixed use residential and retail development on
shallow parcels should be encouraged to support a
more walkable and bikable environment along the
corridor, with appropriate transitions to the
surrounding single-family neighborhoods. The plan
should also foster improved connections to
surrounding destinations. [NEW PROGRAM] [L68]
Deleted per Council Motion
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Encourage a mix of land uses in all Centers, including housing and an
appropriate mix of small-scale local businesses. [Previous Policy L-19]
Policy L-4.2 Encourage street frontages that contribute to retail vitality in all
Centers. Reinforce street corners that come up to the sidewalk in a
way that enhances the pedestrian realm or that form corner plazas.
Include trees and landscaping. [Previous Policy L-20] [L70]
Policy L-4.3 ProvideEnsure all Regional Centers with 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. [Previous Policy L-21] [L71]
Program L4.3.1 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. [Previous
Program L-16] [L72]
Program L4.3.2 Through public/private cooperation, provide
obviouswell-signed, clean, and accessible restrooms
available for use during normal business hours.
[Previous Program L-17] [L73]
Program L4.3.3 Collaborate with merchants to enhance the
appearance of streets and sidewalks within all
Centers through an aggressive . Encourage the
formation of business improvement districts and
undertake a proactive program of maintenance,
repair and cleaning program; street
improvements; and the use of a variety of paving
materials and, landscaping. and
enhancement.[Previous Policy L-22] [L74]
Program L4.3.4 Identify priority street improvements that could
make a substantial contribution to the character of
Centers, includingsuch as widening sidewalks,
narrowing travel lanes, creating medians, restriping
to allow diagonal parking, and planting street trees
[Previous Program L-18] [L75]
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HOTELS
Policy L-4.4 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. [NEW
POLICY] [L12]
Program L4.4.1 Explore increasing hotel FAR from 2.0 to 3.0 in the
University Avenue/Downtown area, and 2.5 in areas
outside of Downtown. [NEW PROGRAM] [L201]
Note: Added per 1/30/17 Council Motion
REGIONAL CENTERS
University Avenue/Downtown
Policy L-4.5 Maintain and enhance the University Avenue/Downtown area as the
central business districta 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 pedestrian character. [(Previous Policy L-23) (Comp Plan Draft EIR Mitigation Measure
AES-1)] [L76]
Support implementation of the Downtown Urban
Design Guide. [Previous Program L-19]
Facilitate reuse of existing buildings. [Previous
Program L-20]
Policy L-4.6 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. [Previous Policy L-24] [L77]
Improve the University Avenue/Downtown
area by adding landscaping and bicycle parking
and encouraging large development projects to
benefit the public by incorporating public art.
[Previous Program L-21]
Enhance the character of the South of Forest Area (SOFA) as a mixed
use area. [Previous Policy L-25]
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Pursue redevelopment of pedestrian, bicycle, and
transit connections to and from between the
University Avenue Multi-modal Transit Station area,
University Avenue/Downtown, and the Stanford
Shopping Center. [Previous Policy L-27] [L78] Note:
Redundant with Transportation Element Program
T-1.10-1 to pursue improvements at the Transit
Center to improve access for all modes.
Program L4.6.1 Prepare a Coordinated Area Plan for the University
Avenue Multi-modal Transit Station Area
Downtown. [Previous Program L-22] [L79]
Prepare a Coordinated Area Plan for the University
Avenue Multi-Modal Transit Station Area.
[Previous Program L-25]
Stanford Shopping Center
Policy L-4.7 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,
including development on existing surface parking lots. [Previous
Policy L-26] [L80] Al housing strategies are located in Goal L-2,
including housing at Stanford Shopping Center. See Program L-2.4.2.
Program L4.7.1 While preserving adequate parking to meet
demand, identify strategies to reuse surface parking
lots. [(Previous Program L-23) (Merged with
Previous Policy L-27)] [L81]
Maintain a Stanford Shopping Center
development cap of 80,000 square feet of
additional development beyond that existing on
June 14, 1996. [Previous Program L-24]
Establish the following unranked community
design priorities for the Uni- versity Avenue
Multi-modal Transit Station Area:
Improving pedestrian, bicycle, transit, and
auto connections to create an urban link
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between University Avenue/Downtown and
Stanford Shop- ping Center.
Creating a major civic space at the Caltrain
Station that links University Avenue/
Downtown and Palm Drive.
Infilling underutilized parcels with a mix of
uses such as shopping, ho ing, office, hotel,
and medical facilities.
Improving public park space.
Protecting views of the foothills by guiding
building heights and mass- ing.[Previous
Program L-26]
MULTI-NEIGHBORHOOD CENTERS
California Avenue
Policy L-4.8 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. [Previous Policy L-28] [L82]
Program L4.8.1 Prepare a coordinated area plan for the Fry's site
and surrounding California Avenue area. The plan
should describe a vision for the future of the Fry's
site 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. [NEW PROGRAM] [L69]
Cal-Ventura Mixed Use Area
Develop the Cal-Ventura area as a well-designed mixed use district
with diverse land uses, two- to three-story buildings, and a
network of pedestrian-oriented streets providing links to California
Avenue.[Previous Policy L-31]
Prepare a Coordinated Area Plan for the Cal-
Ventura area. Use the land use diagram from the
Community Design Workshop as the starting
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point for preparing this Plan. [Previous Program
L-30]
Create a Coordinated Area Plan for the California
Avenue area to guide its development as a well-
designed mixed use district with diverse land uses
and a network of pedestrian-oriented streets
providing links to California Avenue. [(Previous
Policy L-31) (Converted to Program)] [L83]
Establish the following unranked priorities for
redevelopment within the Cal-Ventura area:
Connect the Cal-Ventura area with the Multi-
modal Transit Station and California Avenue.
Provide new streets and pedestrian
connections that complete the street grid and
create a walkable neighborhood.
Fry’s Electronics site (300 Portage): Continued
retail activity is anticipated for this site until
2019. A program should be developed for
the future use of the site for mixed density
multi- family housing and a park or other
open space.
Hewlett-Packard: Uses that are compatible
with the surrounding area and a site plan
that facilitates pedestrian use of Park
Boulevard.
North of Sheridan Avenue: Development of
one or more of the City-owned parking lots
with primarily residential uses, provided that
public parking spaces are replaced.
Park Boulevard: Streetscape
improvements.[Previous Program L-31]
Program L4.8.2 Create regulations for the California Avenue area
that allow for the re- placement or
rehabilitationencourage the retention of smaller
buildings while preventing buildings that are out of
scale with to provide spaces for existing buildings.
[Previous Program L-27] [L84]
PALO ALTO COMPREHENSIVE PLAN
LAND USE AND COMMUNITY DESIGN ELEMENT
L-42 LAND USEREVISED COUNCIL DRAFT – NOVEMBER 28MAY 1, 20176
Work with merchants, property owners, and
City representatives to create an urban design
guide for the California Avenue business district.
[Previous Program L-28]
Encourage residential and mixed use residential development in the
California Avenue area.[Previous Policy L-29]
Revise zoning of the California Avenue business
district to reduce the non- residential
development potential to levels comparable to
other commer- cial areas in the City while
retaining substantial residential development
potential.[Previous Program L-29]
Policy L-4.9 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. [Previous Policy
L-30] [L85]
Town and Country Village
Policy L-4.10 Maintain Recognize and preserve Town and Country Village as an
attractive community-serving 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. [Previous
Policy L-32] [L88]
Policy L-4.11 In Town and Country Village, encourage housing development
consistent with a vibrant business retail environment and urban greening.
[Previous Policy L-33] [L89]
Policy L-4.12 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. [Previous Policy L-34] [L90]
PALO ALTO COMPREHENSIVE PLAN
LAND USE AND COMMUNITY DESIGN ELEMENT
LAND USEREVISED COUNCIL DRAFT – MAY 1NOVEMBER 28, 20176 L-43
South El Camino Real
Establish the South El Camino Real area as a well-designed, compact,
vital, Multi-neighborhood Center with diverse uses, a mix of one-, two,
and three-story buildings, and a network of pedestrian-oriented
streets and ways.[Previous Policy L-35]
Prepare a Coordinated Area Plan for the South El
Camino Real area. Use the land use map from
the Community Design Workshop as a starting
point for preparing this Plan. [Previous Program
L-32]
Enhance the pedestrian environment along South El Camino Real,
redesigning the street to provide wider sidewalks, increased building
setbacks, safe pedestrian crossings at key intersections, trees, and
streetscape improvements, consistent with the recommendations in
the Grand Boulevard Design Guidelines. [(Previous Program L-33)
(Converted to Policy) (Consistent with Comp Plan Draft EIR Mitigation
Measure AES 1)] [L86] Note: Deleted per 1/30/17 Council Motion
Provide better east-west connections across El
Camino Real to bring neighborhoods together and
to improve linkages to local schools and parks.
[Previous Program L-34] [L87] Note: Redundant
with Policy T-3.13 in the Transportation Element,
which also addresses east-west connections.
Allow a full range of office and retail uses on shallow parcels along
South El Camino Real, subject to adequate buffering from adjacent
residential uses.[Previous Policy L-36]
Consider Transfer of Development Rights (TDR)
as a tool to encourage re-development and/or
community-serving amenities along South El
Camino Real.[Previous Program L-35]
PALO ALTO COMPREHENSIVE PLAN
LAND USE AND COMMUNITY DESIGN ELEMENT
L-44 LAND USEREVISED COUNCIL DRAFT – NOVEMBER 28MAY 1, 20176
NEIGHBORHOOD CENTERS
Alma Plaza, Charleston Center, Edgewood Plaza, Midtown
Policy L-4.13 MaintainImprove the scale and local-serving focus of Palo Alto’s four,
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. [Previous Policy L-37] [L91]
Evaluate current zoning to determine if it
supports the types of uses and scale of
buildings considered appropriate in
Neighborhood Centers. [Previous Program L-36]
Encourage property owners within
Neighborhood Centers to prepare mas- ter
plans, with the participation of local
businesses, property owners, and nearby
residents. [Previous Program L-37]
Policy L-4.14 Encourage maximum use of Neighborhood Centers by ensuring that
the publicly maintained areas are clean, well-lit, and attractively
landscaped. [Previous Policy L-38] [L92]
Facilitate opportunities to improve pedestrian-oriented commercial
activity within Neighborhood Centers. [Previous Policy L-39]
Revise land use and zoning designations as
needed to encourage medium- density
housing (20 to 25 units per acre) within or near
Neighborhood Cen- ters served by public
transportation to support a more vital mix of
commer- cial activities.[Previous Program L-38]
Midtown
Policy L-4.15 Revitalize Midtown Shopping Center as an attractive, compact
pedestrian-oriented, one- to two-story Neighborhood Center with
diverse local-serving uses, a mix of one- and two-story buildings, and
adequate parking, and a network of pedestrian-oriented streets, ways
and gathering places. Encourage retention of Midtown’s grocery
PALO ALTO COMPREHENSIVE PLAN
LAND USE AND COMMUNITY DESIGN ELEMENT
LAND USEREVISED COUNCIL DRAFT – MAY 1NOVEMBER 28, 20176 L-45
storesstore and encourage a variety of neighborhood retail shops and
services.[Previous Policy L-40] [L93]
Prepare a plan for Midtown with the
participation of property owners, local
businesses, and nearby residents. Consider
the Midtown Economic Study and the land
use concepts identified during the 1994
Community De- sign Workshop in developing
the plan. The plan should have a special em-
phasis on public improvements, including
parking, street furniture and
signage.[Previous Program L-39]
Make improvements to Middlefield Road in
Midtown that slow traffic, en- courage
commercial vitality, make the street more
pedestrian-friendly, and unify the northeast and
southwest sides of the commercial area, with
consid- eration given to traffic impacts on the
residential neighborhood. [Previous Program
L-40]
Support bicycle and pedestrian trail
improvements along a restored creek within
Hoover Park. [Previous Program L-41]
Maintain existing residential uses within the Midtown area and
encourage additional residential development. [Previous Policy L-41]
Retain the existing housing along Colorado
Avenue and consider increasing the density to
allow townhouses, co-housing, and/or housing
for the disabled. [Previous Program L-42]
EMPLOYMENT DISTRICTS
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.
PALO ALTO COMPREHENSIVE PLAN
LAND USE AND COMMUNITY DESIGN ELEMENT
L-46 LAND USEREVISED COUNCIL DRAFT – NOVEMBER 28MAY 1, 20176
Policy L-5.1 Encourage Foster compact Employment Districts to developed in a
way that facilitates transit, pedestrian and bicycle travel. Provide mixed
uses to reduce the number of auto trips. [Previous Policy L-42 and L-
44] [L94] and [L97]
Modify existing zoning regulations and create
incentives for employers to pro- vide employee
services in their existing buildings—for example,
office support services, restaurants, convenience
stores, public gathering places, and child care
facilities—to reduce the need for employees to
drive to these services.[Previous Program L-43]
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. [NEW PROGRAM] [L98]
Policy L-5.2 Provide landscaping, trees, sidewalks, pedestrian paths, and
connections to the citywide bikeway system within Employment
Districts. Pursue opportunities to buildinclude sidewalks, paths, low
water use landscaping, recycled water, and pathstrees and remove
grass turf in renovation and expansion projects. [Previous Policy L-43]
[L95] Revised to be consistent with wording in Safety Element
Policy L-5.3 Design the paths and sidewalks to be attractive and comfortable and
consistent with the character of the area where they are located.
[(Previous Program L-44) (Converted to Policy)] [L96]
Foster compact employment centers served by a variety of
transportation modes. [Previous Policy L-44] [L97] Combined with L-
5.1 [L94] above.
Create and apply zoning standards and design
guidelines for commercial hotels and conference
centers.[Previous Program L-45]
PALO ALTO COMPREHENSIVE PLAN
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LAND USEREVISED COUNCIL DRAFT – MAY 1NOVEMBER 28, 20176 L-47
Evaluate the optimum number of future hotel
rooms for Palo Alto and consider reductions in the
allowable floor area ratio as appropriate. [NEW
PROGRAM] [L99] Note: Deleted per 1/30/17
Council Motion to consider increasing hotel FAR.
Stanford Medical Center
Develop Stanford Medical Center in a manner that recognizes the
citywide goal of compact, pedestrian-oriented development as well as
the functional needs of the Medical Center.[Previous Policy L-45]
Work with Stanford to prepare an area plan for
the Stanford Medical Center. [Previous Program
L-46]
East Bayshore and San Antonio Road/Bayshore Corridor
Policy L-5.4 Maintain the East Bayshore and San Antonio Road/Bayshore Corridor
areas as diverse business and light industrial districts, Consider the,
consistent with the approved 2012 East Meadow Circle Area as a
potential site for higher density housing that provides a transition
between existing housing andConcept Plan (Appendix Y of this
Comprehensive Plan). [Previous Policy L-46] [L100]
Implement the 2012 East Meadow Circle Concept
Plan (Appendix Y of this Comprehensive Plan)
when approving new development or other
improvements within the Plan area. [NEW
PROGRAM] [L101] Note: Not necessary –
redundant with Policy L-5.4 [L100] above.
Consider the East Meadow Circle Area as a
potential site for higher density housing that
provides a transition between existing housing and
nearby industrial improvements. [Previous Policy L-
47]
Undertake a Community Design Workshop for
the East Meadow Circle Area. [Previous Program
L-47]
PALO ALTO COMPREHENSIVE PLAN
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L-48 LAND USEREVISED COUNCIL DRAFT – NOVEMBER 28MAY 1, 20176
GOAL L-6 Well-designed buildings that create coherent development
patterns and enhance city streets and public spaces.
DESIGN OF BUILDINGS AND PUBLIC SPACES
Buildings
Policy L-6.1 Promote high quality, creative design and site planning that is
compatible with surrounding development and public spaces. [(Comp
Plan Draft EIR Mitigation Measure AES-1, LAND-1, LAND-2) (Previous
Policy L-48)] [L102]
Program L6.1.1 Promote awards programs and other forms of
public recognition for projects of architectural merit
that contribute positively to the community.
[Previous Program L-53] [L103]
Policy L-6.2 Use the Zoning Ordinance, design review process, design guidelines,
and Coordinated Area Plans to ensure high quality residential and
commercial design and architectural compatibility. [(Previous Program
L-48)(Comp Plan Draft EIR Mitigation Measure LAND-1, LAND-2)]
[L104]
Policy L-6.3 Require bird-friendly design. [NEW POLICY] [L105]
Program L6.3.1 Develop guidelines for bird-friendly building design
that minimizes hazards for birds and reduces the
potential for collisions. [NEW PROGRAM] [L106]
Policy L-6.4 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. [(Previous Program L-49) (Converted to Policy)
(Comp Plan Draft EIR as Mitigation Measure AES-1)] [L107]
Policy L-6.5 Guide development to respect views of the foothills and East Bay hills
from public streets in the developed portions of the City. [Previous
Policy L-3] [L108]
PALO ALTO COMPREHENSIVE PLAN
LAND USE AND COMMUNITY DESIGN ELEMENT
LAND USEREVISED COUNCIL DRAFT – MAY 1NOVEMBER 28, 20176 L-49
Policy L-6.6 Design buildings to revitalizecomplement streets and public spaces; to
promote personal safety, public health and well-being; and to
enhance a sense of community and personal safety. Provide an
ordered variety of entries, porches, windows, bays and balconies along
public ways where it is consistent with neighborhood character; avoid
blank or solid walls at street level; and include human-scale details
and massing. [Previous Policy L-49] [L109]
Undertake a comprehensive review of
residential and commercial zoning
requirements to identify additional architectural
standards that should be incorporated to
implement Policy L-49. [Previous Program L-
50]
Use illustrations and form code methods for
simplifying the Zoning Ordinance and to
promote well-designed buildings. [Previous
Program L-51]
Program L6.6.1 Create and apply the following four new Mixed Use
zoning standards: A “Live/Work” designation that
permits individuals to live on the same site where
they work by allowing housing and other uses such
as office, retail, and light industrial to co-exist in the
same building space; and “Retail/ Office,”
“Residential/Retail,” and “Residential/Office”
designations that permit a mix of uses on the same
site or nearby sites. Develop Modify design
standards for all mixed use designations providing
for buildings with one to three stories, rear parking
projects to promote a pedestrian-friendly
relationship to the street, including elements such
as screened parking or underground parking,
street-facing windows and entries, and zero setback
along the street, except that front gardens may be
provided for ground floor residential uses. porches,
windows, bays and balconies along public ways,
and landscaping, and trees along the street. Avoid
blank or solid walls at street level. [Previous
Program L-10] [L122] and [L110]
PALO ALTO COMPREHENSIVE PLAN
LAND USE AND COMMUNITY DESIGN ELEMENT
L-50 LAND USEREVISED COUNCIL DRAFT – NOVEMBER 28MAY 1, 20176
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. [(Note: Council
Motion 1/30/17: This is exact wording of Previous Policy L-6)(Comp
Plan Draft EIR Mitigation Measure LAND-1, LAND-2)] [L117]
Program L6.7.1 Implement architectural standards to assure they
effectively address land use transitions. [(NEW
PROGRAM)(Comp Plan Draft EIR Mitigation
Measure LAND-2)] [L118]
Policy L-6.8 Support existing regulations that preserve exposure to natural light for
single-family residences. [NEW POLICY] [L119]
Consider revising development standards in the
Community Commercial, Service Commercial, and
Downtown Commercial Districts (CC, CS, and CD)
and the Neighborhood Commercial District (CN)
along El Camino Real to incentivize the conversion
of non-retail commercial FAR to residential use.
[NEW PROGRAM] [L123] Note: Combined with
Program L-2.4.4 [L21] about FAR conversion,
moved to Goal L-1 above.
Policy L-6.9 Discourage the use of fences that obscure the view of the front of
houses from the street. [(Previous Program L-52)(Converted to
Policy)] [L125]
Policy L-6.10 Encourage high quality signage that is attractive, energy-efficient,
appropriate for the location, and balances visibility needs with
aesthetic needs. [Previous Policy L-50] [L126]
GOAL L-7 Conservation and preservation of Palo Alto’s
historic buildings, sites, and districts.
HISTORIC CHARACTER RESOURCES
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
PALO ALTO COMPREHENSIVE PLAN
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LAND USEREVISED COUNCIL DRAFT – MAY 1NOVEMBER 28, 20176 L-51
Resources, or the National Register of Historic Places. [Previous Policy
L-51] [L127]
Program L7.1.1 Review and uUpdate and maintain the City’s
Historic Resource Inventory of to determine all
historic resources, including City-owned structures
that are eligible for the California Register as well as
important examples of California history or
prehistory. Historic resources may consist of a
single building or structure or a district. [(Previous
Program L-54)( Draft EIR Mitigation Measure
CULT-1b)] [L128]
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. [Previous
Program L-55] [L129]
Maintain and strengthen the design review
procedure for exterior remodel- ing or
demolition of historic resources. Discourage
demolition of historic resources and severely
restrict demolition of Landmark resources.
[Previous Program L-56]
Policy L-7.2 If a proposed development would affect a potential historic resource
that has not been evaluated for inclusion into the City’s Historic
Resources Inventory, consider whether it is eligible for inclusion in the
City’s Inventory prior to the issuance of a demolition or alterations
permit. [(NEW POLICY) (Comp Plan Draft EIR Mitigation Measure
CULT-1c)] [L130]
Policy L-7.3 Actively seek state and federal funding for the preservation of
buildings of historical merit and consider public/private partnerships
for capital and program improvements. [Previous Policy L-53] [L131]
Support the goals and objectives of the Statewide Comprehensive
Historic Preservation Plan for California. [Previous Policy L-54]
PALO ALTO COMPREHENSIVE PLAN
LAND USE AND COMMUNITY DESIGN ELEMENT
L-52 LAND USEREVISED COUNCIL DRAFT – NOVEMBER 28MAY 1, 20176
Policy L-7.4 Relocation may be considered as a preservation strategy when
consistent with State and National Standards regarding the relocation
of historic resources. [Previous Policy L-55] [L132]
Policy L-7.5 To reinforce the scale and character of University Avenue/Downtown,
promote the preservation of significant historic buildings. [Previous
Policy L-56] [L133]
Policy L-7.6 Promote awards programs and other forms of public recognition for
exemplary Historic Preservation projects. [(Previous Program L-62)
(Converted to Policy)] [L134]
Policy L-7.7 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.
[(Previous Program L-63) (Converted to Policy)] [L135]
REHABILITATION AND REUSE
Policy L-7.8 Promote adaptive reuse of old buildings. [Previous Policy L-58] [L136]
Program L7.8.1 Develop incentives for the retention and
rehabilitation of buildings with historic merit in all
zones and revise existing zoning and permit
regulations as needed to minimize constraints to
adaptive reuse, particularly in retail areas. [(Previous
Policy L-57) (Converted to Program)] [L137]
Program L7.8.2 Create incentives to Eencourage salvage and reuse
of discarded historic building materials. [Previous
Program L-57] [L138]
Program L7.8.3 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. [Previous Program
L-58] [L139]
Follow the procedures established in the State Public Resources Code
for the protection of designated historic buildings damaged by
earthquake or other natural disaster.[Previous Policy L-59]
PALO ALTO COMPREHENSIVE PLAN
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LAND USEREVISED COUNCIL DRAFT – MAY 1NOVEMBER 28, 20176 L-53
Seek additional innovative ways to apply current
codes and ordinances to older buildings. Use
the State Historical Building Code for
designated historic buildings. [Previous Program
L-65]
Revise existing zoning and permit regulations
as needed to minimize con- straints to
adaptive reuse, particularly in retail areas.
[Previous Program L-66]
Policy L-7.9 Allow compatible nonconforming uses for the life of historic buildings.
[(Previous Program L-61) (Converted to Policy)] [L140]
Policy L-7.10 Ensure the preservation of significant historic resources owned by the
City of Palo Alto. Allow such resources to be altered to meet
contemporary needsprovided that the preservations standards
adopted by the City Council are satisfied. consistent with the
Secretary of the Interior Standards for Rehabilitation. [Previous
Policy L-52] [L141]
Policy L-7.11 Maintain the historic integrity of building exteriors. Allow Consider
parking exceptions for historic buildings to encourage rehabilitation.
Require design review findings that the historic integrity of the building
exterior will be maintained. [(Previous Program L-59)(Converted to
Policy)] [L142]
Program L7.11.1 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. [NEW PROGRAM] [L143]
Policy L-7.12 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.[(Previous
Program L-64) (Converted to Policy)] [L144]
PALO ALTO COMPREHENSIVE PLAN
LAND USE AND COMMUNITY DESIGN ELEMENT
L-54 LAND USEREVISED COUNCIL DRAFT – NOVEMBER 28MAY 1, 20176
Policy L-7.13 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.Planned Community (PC) zone properties in the
Downtown also qualify for this program. Consider revising the TDR
Ordinance so that transferred development rights may be used only
for residential development on the receiver sites. [Previous Program
L-60] [L145] and [L30]
ARCHAEOLOGICAL RESOURCES
Policy L-7.14 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
nineteenth century. [(Previous Policy L-60)(Comp Plan Draft EIR
Mitigation Measure CULT-1c)] [L146]
Policy L-7.15 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. [(NEW POLICY) (Comp Plan Draft
EIR Mitigation Measure CULT-3)] [L147]
Policy L-7.16 Using the archaeological sensitivity map in the Comprehensive Plan as
a guide, continue to aAssess 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. [(Previous Program L-67)(Converted to Policy)(Comp
Plan Draft EIR Mitigation Measure CULT-3)] [L148]
Policy L-7.17 Ensure that developers understand their obligation to meet state
codes regarding the identification and protection of archaeological and
paleontological deposits. [(NEW POLICY)(Comp Plan Draft EIR
Mitigation Measure CULT-3] [L149]
PARKS AND GATHERING PLACES
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 public life.
PALO ALTO COMPREHENSIVE PLAN
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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. [NEW POLICY] [L150]
Note: Programs below relocated to Goal C-4 in
CSF, which is about providing parks:
Encourage dedication of new land for parks
through regulations and incentives for new
development and programs to solicit bequests of
land within the city. [NEW PROGRAM] [L151]
Pursue opportunities to create linear parks over the
Caltrain tracks in the event the tracks are moved
below grade. [NEW PROGRAM] [L152]
Explore ways to dedicate a portion of in-lieu fees
towards acquisition of parkland, not just
improvements. [NEW PROGRAM] [L153]
Explore opportunities to dedicate City‐owned land
as parkland to protect and preserve its community
serving purpose into the future. [NEW PROGRAM]
[L154]
Promote the use of community and cultural centers, libraries, local
schools, parks, and other community facilities as gathering places.
Ensure that they are inviting and safe places that can deliver a
variety of community services during both daytime and evening
hours.[Previous Policy L-61]
To help satisfy present and future community use
needs, coordinate with the School District to
educate the public about and to plan for the
future use of school sites, including providing
space for public gathering places for neigh-
borhoods lacking space. [Previous Program L-68]
Enhance all entrances to Mitchell Park
Community Center so that they are more
inviting and facilitate public gatherings. [Previous
Program L-69]
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L-56 LAND USEREVISED COUNCIL DRAFT – NOVEMBER 28MAY 1, 20176
Study the potential for landscaping or park
furniture that would promote neighborhood
parks as outdoor gathering places and centers of
neighborhood activity. [Previous Program L-70]
Policy L-8.2 Provide comfortable seating areas and plazas with places for public art
adjacent to library and community center entrances. [Previous Policy
L-62] [L156]
Policy L-8.3 Encourage small-scale local-serving retail services, such as small cafes,
delicatessens, and coffee carts, in Ccivic Ccenters: Mitchell Park,
Rinconada Library, and Cubberly Community Center. [Previous Policy
L-63] [L157]
Policy L-8.4 Create facilities for civic and intellectual life, such as better urban
public spaces for civic programs and speakers, cultural, musical and
artistic events. [NEW POLICY] [L158]
PUBLIC ART
Policy L-8.5 Promote and maintain 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. [Previous
Policy L-72] [L159]
Consider public art and cultural facilities as a public benefit in
connection with new development projects. Consider incentives for
including public art in large development projects. [Previous Policy
L-73]
Use the work of artists, craftspeople, architects, and landscape
architects in the design and improvement of public spaces. [Previous
Policy L-74]
Minimize the negative physical impacts of parking lots. Locate parking
behind buildings or underground wherever possible. [Previous
Policy L-75]
Revise the Zoning Ordinance to require the
location of parking lots behind buildings rather
PALO ALTO COMPREHENSIVE PLAN
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than in front of them, under appropriate
conditions. [Previous Program L-73]
Modify zoning standards pertaining to parking
lot layout and landscaping for land uses within
Employment Districts. [Previous Program L-74]
Policy L-8.6 Seek potential new sites for art and cultural facilities, public spaces,
open space, and community gardens that encourage and support
pedestrian and bicycle travel and person-to-person contact, particularly
in neighborhoods that lack these amenities. [Previous Policy L-64]
[L160]
Policy L-8.7 Encourage religious and private institutions to provide facilities that
promote a sense of collaborate with the community and are
compatible with the surrounding neighborhood.[Previous Policy L-65]
[L161]
PUBLIC WAYS STREETS AND PUBLIC SPACES
GOAL L-9 Attractive, inviting public spaces and streets that enhance
the image and character of the city.
STREETS AND PATHSPARKING
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 of Palo Alto roads and
trails for motorists, cyclists, pedestrians, and equestrians.their scenic
qualities. [(Previous Policy L-69) (Previous Program L-71)] [L162]
Program L9.1.1 Evaluate existing zoning code setback requirements
to ensure they are appropriate for scenic routes.
[NEW PROGRAM] [L163]
PALO ALTO COMPREHENSIVE PLAN
LAND USE AND COMMUNITY DESIGN ELEMENT
L-58 LAND USEREVISED COUNCIL DRAFT – NOVEMBER 28MAY 1, 20176
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. [Previous Policy L-78] [L164]
Maintain an aesthetically pleasing street network that helps frame and
define the community while meeting the needs of pedestrians,
bicyclists, and motorists.[Previous Policy L-66]
Balance traffic circulation needs with the goal of creating walkable
neighborhoods that are designed and oriented towards pedestrians.
[Previous Policy L-67]
Integrate creeks and green spaces with the street and
pedestrian/bicycle path system. [Previous Policy L-68]
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 favor pedestrianspromote
walking and “active” transportation. [Previous Policy L-17] [L172]
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. [NEW
PROGRAM] [L173]
Require new or redesigned parking lots to optimize pedestrian and
bicycle safety. [NEW POLICY] [L165] Note: Moved to Transportation
Element Goal T-5, section on Parking Design.
Continue to use the El Camino Real Design
Guidelines and the Zoning Ordinance to enhance
the visual character of this corridor by addressing
appropriate sidewalk widths and encouraging
building forms, massing, and setbacks that relate to
the street and the pedestrian, whether through
traditional architectural forms or innovative new
designs. Consider whether sidewalk widths and
building setback should also be addressed along
PALO ALTO COMPREHENSIVE PLAN
LAND USE AND COMMUNITY DESIGN ELEMENT
LAND USEREVISED COUNCIL DRAFT – MAY 1NOVEMBER 28, 20176 L-59
other major thoroughfares such as Alma Street and
Charleston Road. [(NEW PROGRAM) (Comp Plan
Draft EIR Mitigation Measure AES-1)] [L167] Note:
1/30/2017 Council Motion to maintain this
program failed.
Involve tree owners in tree maintenance programs.
[NEW PROGRAM] [L168] Note: Redundant with
Natural Environment Element programs and
policies on engaging residents and others to care
for trees.
PUBLIC SPACES
Policy L-9.4 Maintain and enhance existing public gathering places and open
spaces and integrate new public spaces at a variety of scales. [NEW
POLICY] [L169]
Policy L-9.5 Encourage use of data driven, innovative design methods and tactics
and use data to understand to evaluate how different community
members use public space. [NEW POLICY] [L155]
Policy L-9.6 Create, Ppreserve and enhance the public parks and publicly
accessible, shared outdoor gathering spaces within walking and biking
distance of residential neighborhoods. Ensure that each residential
neighborhood has such spaces. [Previous Policy L-15] [L170]
Program L9.6.1 Analyze existing neighborhoods and determine
where publicly accessible shared, outdoor gathering
spaces are below the citywide average. Create new
public spaces, including public squares, parks and
informal gathering spaces in these neighborhoods.
[NEW PROGRAM] [L171]
GATEWAYS
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; and Embarcadero Road at El Camino Real, and between Palo
Alto and Stanford. [Previous Policy L-71] [L174]
PALO ALTO COMPREHENSIVE PLAN
LAND USE AND COMMUNITY DESIGN ELEMENT
L-60 LAND USEREVISED COUNCIL DRAFT – NOVEMBER 28MAY 1, 20176
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. [Previous
Program L-72] [L175]
URBAN FOREST
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. [NEW POLICY] [L176]
Program L9.8.1 Establish incentives to encourage native trees, and
low water use plantings in new development
throughout the city. [NEW PROGRAM] [L177]
Update City requirements regarding trees and other
landscaping that capture and filter stormwater
within surface parking lots to take advantage of new
technology. [(Previous Policy L-76) (Converted to
Program)] [L178] Moved to Transportation Element
Goal T-5 section on Parking design and water
quality.
Consider Zoning Ordinance amendments for
parking lot landscaping, includ- ing requiring a
variety of drought-tolerant, relatively litter-free
tree species capable of forming a 50 percent
tree canopy within 10 to 15 years. Consider
further amendments that would require existing
nonconforming lots to come into compliance
wherever possible.[Previous Program L-75]
Encourage alternatives to surface parking lots to minimize the amount
of land that must be devoted to parking, provided that economic
andtraffic safety goals can still be achieved. [Previous Policy L-77]
Evaluate parking requirements and actual parking
needs for specific uses. Develop design criteria
PALO ALTO COMPREHENSIVE PLAN
LAND USE AND COMMUNITY DESIGN ELEMENT
LAND USEREVISED COUNCIL DRAFT – MAY 1NOVEMBER 28, 20176 L-61
based on a standard somewhere between average
and peak conditions. [Previous Program L-76]
Revise parking requirements to encourage creative
solutions such as valet parking, landscaped parking
reserves, satellite parking, and others that mini-
mize the use of open land for parking. [Previous
Program L-77]
Encourage the use of Planned Community (PC)
zoning for parking structures Downtown and in the
California Avenue area. [Previous Program L-78]
Policy L-9.9 Involve the Urban Forester, or appropriate City staff, in development
review. [NEW POLICY] [L179]
Policy L-9.10 Recognize the urban forest as City infrastructure to be maintained in
accordance with applicable guidelines and requirements. [NEW
POLICY] [L180]
STREET TREES
Enhance tree health and the appearance of streets and other public
spaces through regular maintenance as well as tree and landscape
planting and care of the existing canopy. [Previous Policy L-70] [L166]
Note: Moved to Natural Environment Element Goal N-2, section on
Protection and Expansion of urban forest.
UTILITIES AND INFRASTRUCTURE
Policy L-9.11 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. [Previous Policy L-79] [L181]
Undertake a coordinated effort by the Public Works,
Utilities, and Planning Departments to establish
design standards for public infrastructure and ex-
amine the effectiveness of City street, sidewalk and
street tree maintenance programs. [Previous
Program L-79]
PALO ALTO COMPREHENSIVE PLAN
LAND USE AND COMMUNITY DESIGN ELEMENT
L-62 LAND USEREVISED COUNCIL DRAFT – NOVEMBER 28MAY 1, 20176
Program L9.11.1 Continue the citywide undergrounding of utility
wires. Minimize the impacts of undergrounding on
street tree root systems and planting areas.
[Previous Program L-80] [L182]
Program L9.11.2 Encourage the use of compact and well-designed
utility elements, such as transformers, switching
devices, and backflow preventers, and
telecommunications infrastructure. Place these
elements in locations that will minimize their visual
intrusion. [Previous Program L-81] [L183]
Policy L-9.12 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. [(NEW POLICY)
(PTC Policy L2.9, edited)] [L184]
Develop an Infrastructure Master Plan that projects
the future needs of streets, underground utilities,
and all City assets and plans for the incorporation
of new technology that improves efficiency and
effectiveness. [(NEW PROGRAM) (PTC Program
L2.9.1)] [L185] Note: Moved to telecommunications
section of Safety Element.
Program L9.12.1 Implement the findings of the City’s Infrastructure
Blue Ribbon Committee and its emphasis for
rebuilding our civic spaces. [(NEW PROGRAM) (PTC
Program L2.9.8)] [L186]
Program L9.12.2 Identify City-owned properties where combinations
of wireless facilities can be co-located, assuming
appropriate lease agreements are in place. [(NEW
PROGRAM)(PTC Program L2.9.5)] [L187]
BAYLANDS
Palo Alto is committed to preservation of the Baylands as called for in
the Baylands Master Plan, which is incorporated here by reference.
[NEW POLICY] [L189] Note: Moved to Natural Environment Element
Goal N-1 section on preserving and protecting the Baylands.
PALO ALTO COMPREHENSIVE PLAN
LAND USE AND COMMUNITY DESIGN ELEMENT
LAND USEREVISED COUNCIL DRAFT – MAY 1NOVEMBER 28, 20176 L-63
GOAL L-10 Maintain an economically viable local airport with minimal
environmental impacts.
PALO ALTO AIRPORT
Policy L-10.1 Support the continued vitality and effectiveness of the Operate Palo
Alto Airport (PAO) as a vital and efficient facility at its current level of
operation without significantly increasing its intensity or intruding into
open space areas. The Airport PAO should remain limited to a single
runway and two fixed base operators minor expansion shall only be
allowed in order to meet federal and State airport design and safety
standards. [(Previous Policy T-57)] [L190]
Program L10.1.1 Encourage Santa Clara County to rRelocate the
terminal building away from the Runway 31 clear
zone and closer to the hangars, allowing for
construction of a new replacement terminal.
[(Previous Program T-58)] [L191]
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. [NEW PROGRAM] [L192]
Program L10.1.3 Identify and pursue funding to address
maintenance, safety and security improvements
needed at PAO. [NEW PROGRAM] [L193]
Policy L-10.2 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. [NEW POLICY] [L188]
Policy L-10.3 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. [NEW POLICY] [L194]
Program L10.3.1 Establish and implement a system for processing,
tracking and reporting noise complaints regarding
local airport operations on an annual basis. [NEW
PROGRAM] [L195]
PALO ALTO COMPREHENSIVE PLAN
LAND USE AND COMMUNITY DESIGN ELEMENT
L-64 LAND USEREVISED COUNCIL DRAFT – NOVEMBER 28MAY 1, 20176
Program L10.3.2 Work with the airport to pursue opportunities to
enhance the open space and habitat value of the
airport. These include:
maintaining native grasses;
reconstructing levees to protect the airport
from sea level rise while enhancing public
access and habitat conservation; and
evaluating the introduction of burrowing owl
habitat. This program is subject to federal
wildlife hazard requirements and guidelines
for airports. [NEW PROGRAM] [L196]
Policy L-10.4 Provide public access to the Airport for bicyclists and pedestrians.
[NEW POLICY] [L197]
Program L10.4.1 Continue to Pprovide a planting strip and
bicycle/pedestrian path adjacent to Embarcadero
Road that is. consistent with the Baylands Master
Plan and open space character of the baylands
subject to federal and State airport regulations.
[(Previous Program T-57)] [L198]
Policy L-10.5 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. [NEW POLICY] [L199]
Policy L-10.6 Encourage the use of alternatives to leaded fuel in aircraft operating in
and out of Palo Alto Airport. [NEW POLICY] [L200]
CITY OF PALO ALTO CITY COUNCIL
ACTION MINUTES
Page 1 of 12
Special Meeting
January 30, 2017
The City Council of the City of Palo Alto met on this date in the Council
Chambers at 5:07 P.M.
Present: DuBois arrived at 5:15 P.M., Filseth, Fine, Holman, Kniss, Kou,
Scharff, Tanaka, Wolbach
Absent:
Closed Session
1. CONFERENCE WITH CITY ATTORNEY-EXISTING LITIGATION
Subject: Buena Vista MHP Residents Association v. City of Palo Alto,
Santa Clara County Superior Court, Case No. 115-CV-284763
Subject Authority: Government Code Section 54956.9(d)(1).
MOTION: Vice Mayor Kniss moved, seconded by Council Member Wolbach
to go into Closed Session.
MOTION PASSED:8-0 DuBois absent
Council went into Closed Session at 5:07 P.M.
Council returned from Closed Session at 6:06 P.M.
Mayor Scharff announced no reportable action.
Special Orders of the Day
2. Selection of Applicants to Interview on February 1, 2017 for the
Historic Resources Board, the Parks and Recreation Commission, and
the Planning and Transportation Commission.
MOTION:Mayor Scharff moved, seconded by Council Member Holman to:
A. Interview all new applicants for the Parks & Recreation Commission
and the Planning & Transportation Commission; and
Attachment E - January 30, 2017 and March 27, 2017 Action Minutes
ACTION MINUTES
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City Council Meeting
Action Minutes: 1/30/17
B. Interview all previously interviewed applicants for the Parks &
Recreation Commission and the Planning & Transportation Commission
if they would like a second interview; and
C. Limit Planning & Transportation Commission interviews to 10 minutes.
SUBSTITUTE MOTION:Vice Mayor Kniss moved, seconded by Council
Member XX to interview all new applicants for the Parks & Recreation
Commission and the Planning & Transportation Commission.
SUBSTITUTE MOTION FAILED DUE TO THE LACK OF A SECOND
MOTION PASSED:9-0
Agenda Changes, Additions and Deletions
None.
Consent Calendar
MOTION:Vice Mayor Kniss moved, seconded by Mayor Scharff to approve
Agenda Item Numbers 3-4.
3. Approval of the Acceptance and Expenditure of Citizens Options for
Public Safety (COPS) Funds on Various Law Enforcement Equipment
and Approval of a Budget Amendment in the Law Enforcement
Services Fund.
4. Resolution 9664 Entitled, “Resolution of the Council of the City of Palo
Alto in Collaboration With the Cities of Redwood City, Menlo Park, and
Mountain View Directing Staff to Participate in Sub-regional Planning
on Bike Routes.”
MOTION PASSED:9-0
Action Items
5. Comprehensive Plan Update: City Council Review & Direction
Regarding the Draft Land Use & Community Design Element and the
Revised Draft Transportation Element.
MOTION:Council Member Wolbach moved, seconded by Mayor Scharff to
direct Staff to include in the final Draft of the Comprehensive Plan Update:
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City Council Meeting
Action Minutes: 1/30/17
A. Cumulative Cap:
Policy L-1.10 would maintain a Cumulative Cap of 1.7 million square
feet, which is the square footage remaining under the existing cap,
focus the Cap on Office/R&D uses and apply it citywide rather than
only in “monitored areas.” It would also exempt medical office uses in
the Stanford University Medical Center (SUMC) area (the current cap
does not apply to this geographic area), and require annual monitoring
to assess the effectiveness of development requirements and
determine whether the cap and the development requirements should
be adjusted; and
B. Annual Limit:
Direct Staff to return with a permanent Ordinance addressing the
Annual Limit, separate from the Comprehensive Plan Update; and
C. Downtown Cap:
Eliminate the Downtown cap found in existing Program L-8 and focus
on monitoring development and parking demand.
AMENDMENT:Council Member Filseth moved, seconded by Council
Member DuBois to replace Part C of the Motion with, “retain the existing
Downtown Cap for 45,000 square feet and exempt retail from the Cap.”
INCORPORATED INTO THE AMENDMENT WITH THE CONSENT OF THE
MAKER AND SECONDER to add to the Amendment, “and hotels” after
“exempt retail.”
AMENDMENT RESTATED:Council Member Filseth moved, seconded by
Council Member DuBois to replace Part C of the Motion with, “Program
L-1.16.4 would retain a Downtown Cap of about 45,000 square feet for
Office/R&D similar to Program L-1.16.2, and would also Cap new hotel
development at 50,000 square feet.”
AMENDMENT AS AMENDED FAILED:4-5 DuBois, Filseth, Holman, Kou
yes
AMENDMENT:Council Member Fine moved, seconded by Council Member
Tanaka to add to Motion Part A, “with the exception of the Stanford
Research Park” after “apply it citywide.”
AMENDMENT FAILED:2-7 Fine, Tanaka yes
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INCORPORATED INTO THE MOTION WITH THE CONSENT OF THE
MAKER AND SECONDER to replace Part B of the Motion with, “direct Staff
to make permanent the Annual Limit Ordinance of 50,000 Square Feet,
separate from the Comprehensive Plan Update.”
AMENDMENT:Council Member Fine moved, seconded by Council Member
XX to add to Motion Part C, “and initiate a community driven Specific Area
Plan for the Downtown Area.”
AMENDMENT WITHDRAWN BY THE MAKER
AMENDMENT: Council Member DuBois moved, seconded by Council
Member Holman to replace Part B of the Motion with, “Policy L-1.14 would
perpetuate the interim annual limit of 50,000 square feet of Office/R&D and
expand it to apply citywide, except that an additional 50,000 square footage
allocation would be provided for the Stanford Research Park (SRP), and that
allocation could be carried forward to future years if unused, up to the
existing allowable square footage in the SRP. Stanford University Medical
Center (SUMC) would be exempt from the annual limit. This exemption could
be clarified to apply only to approved uses only if desired.”
INCORPORATED INTO THE AMENDMEND WITH THE CONSENT OF THE
MAKER AND SECONDER to add to the Amendment, “establish a baseline
traffic measure for the Stanford Research Park.”
AMENDMENT AS AMENDED RESTATED: Council Member DuBois moved,
seconded by Council Member Holman to replace Part B of the Motion with,
“Policy L-1.14 would perpetuate the interim annual limit of 50,000 square
feet of Office/R&D and expand it to apply citywide, except that an additional
50,000 square footage allocation would be provided for the Stanford
Research Park (SRP), and that allocation could be carried forward to future
years if unused, up to the existing allowable square footage in the SRP.
Stanford University Medical Center (SUMC) would be exempt from the
annual limit. This exemption could be clarified to apply only to approved
uses only if desired. Establish a baseline traffic measure for the Stanford
Research Park.”
AMENDMENT AS AMENDED FAILED:3-6 DuBois, Holman, Kou yes
MOTION AS AMENDED RESTATED:Council Member Wolbach moved,
seconded by Mayor Scharff to direct Staff to include in the final Draft of the
Comprehensive Plan Update:
ACTION MINUTES
Page 5 of 12
City Council Meeting
Action Minutes: 1/30/17
A. Cumulative Cap:
Policy L-1.10 would maintain a Cumulative Cap of 1.7 million square
feet, which is the square footage remaining under the existing cap,
focus the Cap on Office/R&D uses and apply it citywide rather than
only in “monitored areas.” It would also exempt medical office uses in
the Stanford University Medical Center (SUMC) area (the current Cap
does not apply to this geographic area), and require annual monitoring
to assess the effectiveness of development requirements and
determine whether the Cap and the development requirements should
be adjusted; and
B. Annual Limit:
Direct Staff to make permanent the Annual Limit Ordinance of 50,000
Square Feet, separate from the Comprehensive Plan Update; and
C. Downtown Cap:
Eliminate the Downtown Cap found in existing Program L-8 and focus
on monitoring development and parking demand.
MOTION AS AMENDED PASSED: 5-4 DuBois, Filseth, Holman, Kou no
MOTION:Vice Mayor Kniss moved, seconded by Council Member Wolbach
to maintain the current 50 foot height limit separate from the
Comprehensive Plan Update, continuing as an Ordinance.
AMENDMENT:Council Member Wolbach moved, seconded by Council
Member XX to replace in the Motion, “the current 50 foot height limit
separate from the Comprehensive Plan Update, continuing as an Ordinance”
with “any but only existing language in the 1998 Comprehensive Plan
relating to height limits.”
AMENDMENT FAILED DUE TO THE LACK OF A SECOND
AMENDMENT:Council Member Holman moved, seconded by Council
Member Kou to add to the Motion, “include Policy L-6.7 and add possible,
limited exceptions to the Fry’s and Cubberley sites.
AMENDMENT FAILED: 3-6 DuBois, Holman, Kou yes
MOTION PASSED:7-2 DuBois, Holman no
Council took a break at 8:49 P.M. and returned at 9:00 P.M.
ACTION MINUTES
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Action Minutes: 1/30/17
MOTION:Council Member Wolbach moved, seconded by Vice Mayor Kniss
to direct Staff to exclude from the final draft of the Comprehensive Plan
Update “child care” from the list of typical Neighborhood Commercial uses.
MOTION PASSED:6-3 Filseth, Fine, Tanaka no
MOTION:Council Member Fine moved, seconded by Council Member
DuBois to direct Staff to include in the final draft of the Comprehensive Plan
Update:
A. Pursue multifamily housing at the Stanford Shopping Center, provided
adequate parking is maintained, as alluded to in Policy L-4.7 (the
language could be strengthened); and
B. Pursue multifamily housing in the Stanford Research Park, particularly
along the El Camino Real frontage as alluded to in Program L-5.4.1
(the language could be strengthened); and
C. Reinstate the language in previous Policy L-33 (now Policy L-4.12 and
Program L-1.12.3) about housing potential in the Town & Country
area; and
D. Include a new program to pursue multifamily housing near Stanford
University Medical Center (SUMC) and/or in the western part of the
Stanford Research Park.
INCORPORATED INTO THE MOTION WITH THE CONSENT OF THE
MAKER AND SECONDER to replace Part B of the Motion with, “Program
L-5.4.1 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.” (New Part E)
AMENDMENT: Council Member Holman moved, seconded by Vice Mayor
Kniss to add to the Motion Part C, “which would be limited to second floor
office conversion.”
AMENDMENT WITHDRAWN BY THE MAKER
AMENDMENT: Mayor Scharff moved, seconded by Council Member Holman
to replace Part C of the Motion with, “not support housing in the Town &
Country area.”
AMENDMENT PASSED: 5-4 DuBois, Fine, Tanaka, Wolbach no
ACTION MINUTES
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INCORPORATED INTO THE MOTION WITH THE CONSENT OF THE
MAKER AND SECONDER to replace in Parts A and D of the Motion,
“pursue” with “explore.”
INCORPORATED INTO THE MOTION WITH THE CONSENT OF THE
MAKER AND SECONDER to remove from Motion Part D, “and/or in the
western part of the Stanford Research Park.”
INCORPORATED INTO THE MOTION WITH THE CONSENT OF THE
MAKER AND SECONDER to add to the Motion Part A, “and vibrant retail”
after “adequate parking.”
MOTION AS AMENDED RESTATED:Council Member Fine moved,
seconded by Council Member DuBois to direct Staff to include in the final
draft of the Comprehensive Plan Update:
A. Explore multifamily housing at the Stanford Shopping Center, provided
adequate parking and vibrant retail is maintained, as alluded to in
Policy L-4.7 (the language could be strengthened); and
B. L-5.4.1 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; and
C. Not support housing in the Town & County area; and
D. Include a new program to explore multifamily housing near Stanford
University Medical Center (SUMC).
MOTION AS AMENDED PASSED:9-0
MOTION:Council Member DuBois moved, seconded by Mayor Scharff to
direct Staff to include in the final draft of the Comprehensive Plan Update, a
new program to eliminate housing sites along San Antonio Road and
increase residential densities in Downtown and the California Avenue Area to
replace potential units on the sites eliminated.
MOTION PASSED:6-3 Filseth, Kniss, Kou no
MOTION:Council Member Fine moved, seconded by Vice Mayor Kniss to
direct Staff to eliminate from the final draft of the Comprehensive Plan
Update Development Requirements and Community Indicators.
ACTION MINUTES
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Action Minutes: 1/30/17
INCORPORATED INTO THE MOTION WITH THE CONSENT OF THE
MAKER AND SECONDER to add to the Motion, “direct Staff to consider a
Community Indicator Program as part of the next iteration of the Annual
Performance Report or another on-going monitoring effort.” (New Part B)
SUBSTITUTE MOTION:Council Member Holman moved, seconded by
Council Member Kou to direct Staff to include in the final draft of the
Comprehensive Plan Update: to articulate the purposes and topics for
development requirements in the Comprehensive Plan, but develop details
later via Comprehensive Plan program and reference tables L-1 and L-2 and
include Staff comments regarding these tables and include references to
Vehicle Miles Traveled (VMT) wherever Level Of Service (LOS) is included in
the Comprehensive Plan.
SUBSTITUTE MOTION FAILED:4-5 DuBois, Filseth, Holman, Kou yes
SUBSTITUTE MOTION:Council Member Wolbach moved, seconded by
Council Member Holman to direct Staff to include in the final draft of the
Comprehensive Plan Update to articulate the purposes and topics for
development requirements in the Comprehensive Plan, but develop details
later via an implementation program excluding Comprehensive Plan
Programs.
SECOND WITHDRAWN BY THE SECONDER
SUBSTITUTE MOTION FAILED DUE TO THE LACK OF A SECOND
MOTION AS AMENDED RESTATED:Council Member Fine moved,
seconded by Vice Mayor Kniss to direct Staff to include in the final draft of
the Comprehensive Plan Update:
A. Eliminate Development Requirements and Community Indicators in the
Comprehensive Plan; and
B. Direct Staff to consider a Community Indicator Program as part of the
next iteration of the Annual Performance Report or another on-going
monitoring effort.
MOTION AS AMENDED PASSED:8-1 Holman no
MOTION:Vice Mayor Kniss moved, seconded by Council Member Holman
to direct Staff to include in the final draft of the Comprehensive Plan Update
to create new opportunities for retail/residential mixed use and pursue
conversion of some non-retail commercial Floor Area Ratio (FAR) to
ACTION MINUTES
Page 9 of 12
City Council Meeting
Action Minutes: 1/30/17
residential FAR as alluded to in Policy L-6.12, this policy will be separated
into two Programs, Program L-1.16.5, and Program L-1.12.3.
MOTION PASSED:8-0-1 Tanaka abstain
MOTION:Council Member Wolbach moved, seconded by Council Member
Fine to direct Staff to include in the final draft of the Comprehensive Plan
Update, Policy L-2.3 about encouraging a mix of housing types and sizes
designed for greater affordability and Policy 3.4 about encouraging a mix of
smaller housing types.
MOTION PASSED:8-0-1 DuBois abstain
MOTION:Council Member Holman moved, seconded by Council Member
Fine to direct Staff to include in the final draft of the Comprehensive Plan
Update Policy L-3.5 and associated Program L-3.5.1 regarding ways to
minimize displacement of existing residents.
MOTION PASSED:8-0-1 Tanaka abstain
MOTION:Vice Mayor Kniss moved, seconded by Council Member Wolbach
to direct Staff to include in the final draft of the Comprehensive Plan Update,
policies and programs like Policy L-4.1, Program L-3.2.1, and Program
L-6.12.4 about preserving ground floor retail space.
MOTION PASSED:5-0-4 Filseth, Holman, Kou, Scharff abstain
MOTION:Council Member DuBois moved, seconded by Council Member
Kou to direct Staff to include in the final draft of the Comprehensive Plan
Update, maintain Policy L-3.3 and/or Policy L-3.6 (some repetition can be
eliminated) and associated Program L-3.3.1 about preserving existing
housing that is affordable, such as small cottage clusters, removing from
Program L-3.3.1, “and the replacement of rental housing units with
ownership housing units.”
MOTION PASSED:6-0-3 Kou, Tanaka, Wolbach abstain
MOTION:Council Member Wolbach moved, seconded by Vice Mayor Kniss
to direct Staff to include in the final draft of the Comprehensive Plan Update,
Program L-1.16.5 (we will fix the numbering problem here) or L-7.12.1
(some repetition can be eliminated) to revise or consider revising the
Transferable Development Rights (TDR) Program Downtown to create bonus
residential rather than commercial square footage.
MOTION PASSED:7-0-2 Filseth, Tanaka abstain
ACTION MINUTES
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City Council Meeting
Action Minutes: 1/30/17
MOTION:Mayor Scharff moved, seconded by Council Member Tanaka to
direct Staff to include in the final draft of the Comprehensive Plan Update, a
program to explore increasing hotel Floor Area Ratio (FAR) from 2.0 to 3.0.
INCORPORATED INTO THE MOTION WITH THE CONSENT OF THE
MAKER AND SECONDER to add to the Motion, “in areas inside of
Downtown and 2.5 in other areas.”
MOTION AS AMENDED RESTATED:Mayor Scharff moved, seconded by
Council Member Tanaka to direct Staff to include in the final draft of the
Comprehensive Plan Update, a program to explore increasing hotel Floor
Area Ratio (FAR) from 2.0 to 3.0 in areas inside of Downtown and 2.5 in
other areas.”
MOTION AS AMENDED PASSED:5-3-1 DuBois, Holman, Kou no, Filseth
abstain
MOTION:Council Member DuBois moved, seconded by Council Member
Holman to direct Staff to include in the final draft of the Comprehensive Plan
Update, Policy L-4.10 regarding enhancing the pedestrian environment
along El Camino Real and Program L-9.4.1 specific to sidewalk widths and
building design.
MOTION FAILED:4-1-4 Fine no, Filseth, Kniss, Scharff, Wolbach abstain
MOTION:Council Member DuBois moved, seconded by Council Member
Holman to direct Staff to include in the final draft of the Comprehensive Plan
Update converting Policy L-4.10 regarding enhancing the pedestrian
environment along El Camino Real to a Program and maintain Program
L-9.4.1 specific to sidewalk widths and building design.
MOTION FAILED:3-5-1 DuBois, Holman, Kou yes, Fine abstain
MOTION:Council Member DuBois moved, seconded by Council Member
Filseth to direct Staff to eliminate from the final draft of the Comprehensive
Plan Update Program L-4.2.1 regarding preparation of a Coordinated Area
Plan for South El Camino (pp. L-48 through L-49).
MOTION PASSED:6-2-1 Fine, Tanaka no, Filseth abstain
MOTION:Council Member Holman moved, seconded by Council Member
Filseth to direct Staff to restore in the final draft of the Comprehensive Plan
Update, existing Policy L-6 language about preserving neighborhood
character (“avoid abrupt changes in scale and density between residential
and non-residential areas and between residential areas of different
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City Council Meeting
Action Minutes: 1/30/17
densities. To promote compatibility and gradual transitions between land
uses, place zoning district boundaries at mid-block locations rather than
along streets wherever possible.”) This is in lieu of the new language
proposed in Policy L-6.11.
MOTION PASSED:5-2-2 Scharff, Wolbach no, Fine, Tanaka abstain
MOTION:Council Member Wolbach moved, seconded by Council Member
Fine to direct Staff to remove from the final draft of the Comprehensive Plan
Update, all Programs from the Land Use Element, not required by State Law
to be taken up at future dates as policy discussions and use the
implementation section of the Plan to indicate the relative cost and priority
of each Program.
MOTION FAILED: 4-2-3 DuBois, Kou, no, Filseth, Holman, Scharff abstain
MOTION:Council Member Wolbach moved, seconded by Council Member
Fine to direct Staff to remove from the final draft of the Comprehensive Plan
Update, all Programs from the Land Use Element, not required by State Law
to be taken up at future dates as policy discussions and use the
implementation section of the plan to indicate the relative cost and priority
of each Program.
MOTION PASSED:5-4 DuBois, Filseth, Holman, Kou no
MOTION: Council Member DuBois moved, seconded by Mayor Scharff to
remove all Programs from the Transportation Element.
MOTION PASSED:6-1-2 Holman no, Filseth, Kniss abstain
MOTION:Mayor Scharff moved, seconded by Council Member Filseth to
continue the Revised Draft Transportation Element to a date uncertain.
MOTION PASSED:9-0
MOTION:Council Member Holman moved, seconded by Council Member
DuBois to continue the Land Use Element to a date uncertain.
MOTION PASSED: 9-0
Inter-Governmental Legislative Affairs
None.
ACTION MINUTES
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City Council Meeting
Action Minutes: 1/30/17
Council Member Questions, Comments and Announcements
None.
Adjournment: The meeting was adjourned at 10:59 P.M.
CITY OF PALO ALTO CITY COUNCIL
ACTION MINUTES
Page 1 of 8
Special Meeting
March 27, 2017
The City Council of the City of Palo Alto met on this date in the Council
Chambers at 4:34 P.M.
Present: DuBois arrived at 5:35 P.M., Filseth arrived at 4:40 P.M., Fine,
Holman arrived at 4:45 P.M., Kniss, Kou, Scharff, Tanaka,
Wolbach
Absent:
Closed Session
1. CONFERENCE WITH REAL PROPERTY NEGOTIATORS
Authority: Government Code Section 54956.8
Property: Terman Apartments, 4230-70 Terman Drive, Palo Alto, CA
Agency Negotiators: James Keene, Lalo Perez, Hamid Ghaemmaghami,
Hillary Gitelman
Negotiating Parties: Terman Associates/G&K Management Co. and
City of Palo Alto
Under Negotiation: Option to Purchase – Price, Affordability
Restrictions and Terms of Payment.
MOTION:Vice Mayor Kniss moved, seconded by Council Member Wolbach
to go into Closed Session.
MOTION PASSED:6-0 DuBois, Filseth, Holman absent
Council went into Closed Session at 4:36 P.M.
Council returned from Closed Session at 5:48 P.M.
Agenda Changes, Additions and Deletions
None.
Minutes Approval
2. Approval of Action Minutes for the March 6, 2017 Council Meeting.
ACTION MINUTES
Page 2 of 8
City Council Meeting
Action Minutes: 3/27/17
MOTION:Mayor Scharff moved, seconded by Council Member Filseth to
approve the Action Minutes for the March 6, 2017 Council Meeting.
MOTION PASSED:9-0
Consent Calendar
Council Members Filseth, Kou, and Tanaka registered no votes on Agenda
Item Number 7- Adoption of a new Memoranda of Agreement With the Palo
Alto Fire Chiefs' Association…
MOTION:Council Member Fine moved, seconded by Council Member
Wolbach to approve Agenda Item Numbers 3-7.
3. Approval of the Human Services Emerging Needs Fund Policy Providing
Oversight of Accepting, Reviewing and Approval of Applications to This
Fund.
4. Approval of Amendment Number 1 to Contract Number S16164688 to
add $250,000 for a Total Not-to-Exceed Amount of $300,000 With
Municipal Resources Group for Professional Human Resources
Consulting Services.
5. Approval of a Contract With Artist Mary Lucking in the Total Not-to-
Exceed Amount of $100,000 for the Design Development, Fabrication
and Installation of Artwork Associated With the Highway 101 Bike and
Pedestrian Bridge.
6. Approval of Five Separate Professional Services Agreements for
General Electric and Gas Services Over a Three Year Term With all
Subject to an Aggregate Not-to-Exceed Amount of $975,000, With:
(1) Navigant Consulting; (2) Flynn Resource Consulting Inc.;
(3) PA Consulting Group; (4) Optony Inc.; and (5) NewGen Strategies
and Solutions, LLC.
7. Adoption of a new Memoranda of Agreement With the Palo Alto Fire
Chiefs' Association and an Amendment to the Salary Schedule for
Managers and Professional Personnel.
MOTION FOR AGENDA ITEM NUMBERS 3-6 PASSED:9-0
MOTION FOR AGENDA ITEM NUMBER 7 PASSED:6-3 Filseth, Kou,
Tanaka no
ACTION MINUTES
Page 3 of 8
City Council Meeting
Action Minutes: 3/27/17
Action Items
10. PUBLIC HEARING: 900 N. California Avenue [15PLN-00155]: Appeal of
the Planning and Community Environment Director's Architectural
Review Approval of Three new Single-Family Homes, one With a
Second Unit. Environmental Review: Categorically Exempt per CEQA
Guidelines Section 15303(a) (New Construction or Conversion of Small
Structures), Zoning District: R-1.
Public Hearing opened at 6:12 P.M.
Public Hearing closed at 6:55 P.M.
MOTION:Council Member Wolbach moved, seconded by Vice Mayor Kniss
to:
A. Adopt a Record of Land Use Action, thereby denying the appeal,
upholding the Director’s approval of an Architectural Review
application based on a modified design removing two of the three
previously proposed basements; and
B. Find the proposed project exempt from review under the California
Environmental Quality Act.
INCORPORATED INTO THE MOTION WITH THE CONSENT OF THE
MAKER AND SECONDER to add to the Motion, “direct Staff to schedule an
Agenda Item for the Policy and Services Committee to review the City’s
public noticing procedures.” (New Part C)
INCORPORATED INTO THE MOTION WITH THE CONSENT OF THE
MAKER AND SECONDER to add to the Motion, “include notice on
construction site with appropriate City contact information for complaints.”
(New Part D)
MOTION AS AMENDED RESTATED:Council Member Wolbach moved,
seconded by Vice Mayor Kniss to:
A. Adopt a Record of Land Use Action, thereby denying the appeal,
upholding the Director’s approval of an Architectural Review
application based on a modified design removing two of the three
previously proposed basements; and
B. Find the proposed project exempt from review under the California
Environmental Quality Act; and
ACTION MINUTES
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City Council Meeting
Action Minutes: 3/27/17
C. Direct Staff to schedule an Agenda Item for the Policy and Services
Committee to review the City’s public noticing procedures; and
D. Include notice on construction site with appropriate City contact
information for complaints.
MOTION PASSED AS AMENDED PASSED:9-0
8. PUBLIC HEARING: 670 Los Trancos Road [16PLN-00266]: Site and
Design Review to Allow the Construction of a new Single Family House
and Guest House With a Total of Approximately 10,960 Square Feet of
Floor Area. Environmental Assessment: Categorically Exempt From
California Environmental Quality Act (CEQA) Pursuant to Guidelines
Section 15303 (New Construction or Conversion of Small Structures).
Zoning District: OS.
Public Hearing opened at 7:34 P.M.
Public Hearing closed at 8:18 P.M.
MOTION:Vice Mayor Kniss moved, seconded by Council Member Fine to
adopt a Record of Land Use Action for a Site and Design application to allow
the construction of a new two-story single family residence, detached guest
house, and associated site improvements on the property at 670 Los Trancos
Road.
INCORPORATED INTO THE MOTION WITH THE CONSENT OF THE
MAKER AND SECONDER to add to the Motion, “including the following
change:
A. Add to the Conditions of Approval, ‘plant screening trees at the start of
construction.’”
INCORPORATED INTO THE MOTION WITH THE CONSENT OF THE
MAKER AND SECONDER to add to Part A of the Motion, “in addition to the
required tree planting, the Applicant shall plant prior to the commencement
of construction, fast growing vegetation and trees to further obscure the
home during construction, subject to Urban Forestry review. These trees
may be removed subject to the approval of the City's Arborist.”
AMENDMENT:Council Member Kou moved, seconded by Council Member
Wolbach to add to the Motion, “direct the Applicant to lower the accessory
structure to below the ridgeline.”
SECOND WITHDRAWN BY THE SECONDER
ACTION MINUTES
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City Council Meeting
Action Minutes: 3/27/17
AMENDMENT FAILED DUE TO THE LACK OF A SECOND
INCORPORATED INTO THE MOTION WITH THE CONSENT OF THE
MAKER AND SECONDER to add to the Motion, “direct the City Arborist to
consider the appropriateness of Live Oak or other non-deciduous trees as
mitigation screening trees.” (New Part B)
MOTION AS AMENDED RESTATED:Vice Mayor Kniss moved, seconded by
Council Member Fine to adopt a Record of Land Use Action for a Site and
Design application to allow the construction of a new two-story single family
residence, detached guest house, and associated site improvements on the
property at 670 Los Trancos Road including the following changes:
A. Add to the Conditions of Approval, “plant screening trees at the start
of construction and, in addition to the required tree planting, the
Applicant shall plant prior to the commencement of construction, fast
growing vegetation and trees to further obscure the home during
construction, subject to Urban Forestry review. These trees may be
removed subject to the approval of the City's Arborist;” and
B. Direct the City Arborist to consider the appropriateness of Live Oak or
other non-deciduous trees as mitigation screening trees.
MOTION AS AMENDED PASSED:9-0
Council took a break from 9:19 P.M. to 9:32 P.M.
9. PUBLIC HEARING: Adoption of two Ordinances to Update the City’s
Below Market Rate (BMR) Housing Program as Recommended by the
Finance Committee: (1) Repealing Municipal Code Section 16.47 (Non-
residential Projects) and 18.14 (Residential Projects); and Adding a
new Section 16.65 (Citywide Affordable Housing In-lieu Fees for
Residential, Nonresidential, and Mixed Use Developments). The
Proposed Ordinances are Exempt From the California Environmental
Quality Act (CEQA) per Sections 15378(b)(4), 15305 and 15601(b)(3)
of the State CEQA Guidelines (FIRST READING: December 12, 2016
PASSED: 5-3 Kniss, Scharff and Wolbach no) SECOND READING
Continued From January 9, 2017.
Public Hearing opened at 9:38 P.M.
Public Hearing closed at 9:57 P.M.
MOTION:Council Member Fine moved, seconded by Council Member
Wolbach to adopt:
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Action Minutes: 3/27/17
A. An Ordinance amending the City’s Below Market Housing Program; and
i. Add Section 16.65.080(B)(3), “notwithstanding Section
16.65.080 (A) (5), the City Council may accept fees in lieu of the
alternatives in Paragraph 1 provided it makes a finding that
special circumstances justify payment of fees over provision of
ownership units, such as a finding that the fees generated would
result in more affordable units than those required to be
provided on site or that funds are needed to finance a pending
affordable housing project;” and
B. An Ordinance updating the housing impact and in-lieu fees including
updating the housing impact and in-lieu fees as follows:
i. Set the Office/R&D housing impact fee at $35 per square foot;
and
ii. Maintain the Hotel housing impact fee at $20.37 per square foot;
and
iii. Maintain the Retail/Restaurant/Other housing impact fee at
$20.37 per square foot; and
iv. Set the Market-rate single family detached in-lieu fee at $50 per
square foot; and
v. Set the Market-rate single family attached in-lieu fee at $35 per
square foot; and
vi. Set the Market-rate Condominium in-lieu fee at $20 per square
foot; and
vii. Set the Market-rate rental housing impact fee at $20 per square
foot; and
C. Direct Staff to return in one year with a status update.
SUBSTITUTE MOTION:Council Member Kou moved, seconded by Council
Member DuBois to adopt on second reading:
A. An Ordinance amending the City’s Below Market Housing Program; and
B. An Ordinance updating the housing impact and in-lieu fees.
SUBSTITUTE MOTION FAILED:4-5 DuBois, Filseth, Holman, Kou yes
ACTION MINUTES
Page 7 of 8
City Council Meeting
Action Minutes: 3/27/17
AMENDMENT:Mayor Scharff moved, seconded by Vice Mayor Kniss to
replace in Part B.iv. of the Motion, “$50” with “$90.”
AMENDMENT RESTATED AND INCORPORATED INTO THE MOTION
WITH THE CONSENT OF THE MAKER AND SECONDER to replace in Part
B.iv. of the Motion, “$50” with “$75.”
AMENDMENT:Council Member Holman moved, seconded by Council
Member Filseth to replace in Part B.i. of the Motion, “$35” with “$50.”
AMENDMENT FAILED:4-5 DuBois, Filseth, Holman, Kou yes
AMENDMENT:Council Member Tanaka moved, seconded by Council
Member XX to replace in Part B.iii. of the Motion, “$20.37” with “$15.”
AMENDMENT FAILED DUE TO THE LACK OF A SECOND
INCORPORATED INTO THE MOTION WITH THE CONSENT OF THE
MAKER AND SECONDER to replace in Part B.v. of the Motion, “$35” with
“$50” and replace in Part B.vi. of the Motion, “$20” with “$50.”
MOTION AS AMENDED RESTATED:Council Member Fine moved,
seconded by Council Member Wolbach to adopt:
A. An Ordinance amending the City’s Below Market Housing Program; and
i. Add Section 16.65.080(B)(3), “notwithstanding Section
16.65.080 (A) (5), the City Council may accept fees in lieu of the
alternatives in Paragraph 1 provided it makes a finding that
special circumstances justify payment of fees over provision of
ownership units, such as a finding that the fees generated would
result in more affordable units than those required to be
provided on site or that funds are needed to finance a pending
affordable housing project;” and
B. An Ordinance updating the housing impact and in-lieu fees including
updating the housing impact and in-lieu fees as follows:
i. Set the Office/R&D housing impact fee at $35 per square foot;
and
ii. Maintain the Hotel housing impact feeat $20.37 per square foot;
and
iii. Maintain the Retail/Restaurant/Other housing impactfee at
$20.37 per square foot; and
ACTION MINUTES
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City Council Meeting
Action Minutes: 3/27/17
iv. Set the Market-rate single family detached in-lieu fee at $75 per
square foot; and
v. Set the Market-rate single family attached in-lieu fee at $50 per
square foot; and
vi. Set the Market-rate Condominium in-lieu fee at $50 per square
foot; and
vii. Set the Market-rate rental housing impact fee at $20 per square
foot; and
C. Direct Staff to return in one year with a status update.
MOTION AS AMENDED PASSED:5-4 DuBois, Filseth, Holman, Kou no
Inter-Governmental Legislative Affairs
None.
Council Member Questions, Comments and Announcements
Council Member DuBois requested the Council have an opportunity to
discuss Council meeting start times during the upcoming Council Retreat.
Council Member Kou supported including such a discussion during the
Council Retreat.
Mayor Scharff agreed that such a discussion will be helpful. He pointed out
that Council has certain amount of work that needs to be completed. He
shared that starting meetings earlier, allowing meetings to end later, or
reducing the number of Consent Items pulled for Council discussion are
options to complete this work. He reported that late night meetings can take
a toll on Staff Members, which is something the Council should take into
consideration.
Council Member DuBois suggested Council consider meeting every Monday
each month.
Council Member Kou suggested the Council hold meetings when a quorum is
available instead of cancelling a meeting.
Council Member Holman supported this discussion take place at the Council
Retreat.
Adjournment: The meeting was adjourned at 11:08 P.M.