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HomeMy WebLinkAbout2003-07-19 City CouncilCity of Palo Alto City Manager’s Report TO:HONORABLE CITY COUNCIL FROM:CITY MANAGER DEPARTMENT: PLANNING AND COMMUNITY ENVIRONMENT DATE: SUBJECT: JULY 19, 2003 CMR: 358:03 ZONING ORDINANCE UPDATE: JOINT STUDY SESSION WITH PLANNING AND TRANSPORTATION COMMISSION REGARDING ZONING PROTOTYPES AND FORM CODE FOR COMPREHENSIVE PLAN LAND USES This report provides the City Council and the Planning and Transportation Commission (P&TC) with background information for the study session on the City’s Zoning Ordinance Update (ZOU), and outlines policy issues for discussion by the Council and Commission. BACKGROUND The City of Palo Alto’s Zoning Ordinance comprises Title 18 of the City’s Municipal Code. The City last prepared a comprehensive update of its Zoning Ordinance in 1978. In 1998, the City Council adopted an updated Comprehensive Plan, including 55 programs and policies identified to be implemented through an update of the Zoning Ordinance. The City Council has continued to include the update, as well as other planning issues, among its Top 5 priorities. The Planning and Transportation Commission (P&TC) has to-date reviewed an overall format for the updated ordinance, recommended modifications to code regulations governing industrial and research uses in Palo Alto, and made significant progress addressing second dwelling unit provisions in the ordinance. In addition, the P&TC has spent considerable time reviewing and directing the work of the ZOU urban design consultants to develop prototypes for multi-family, mixed use, village residential and transit-oriented residential development types, as called for in the Comprehensive Plan. The Architectural Review Board (ARB) has been regularly apprised of the progress on the design work, and has expressed strong support for the form code effort. The Council has seen much of the material reviewed by the P&TC at prior study sessions, including an overview of Phase 1 of the design work, and has recently approved contracts for Phase 2 of the consultants’ work. This study session will allow the Council and P&TC to provide input on several important policies that will help to formulate desirable prototypes to be incorporated into a form code component of the ZOU. DISCUSSION The focus of the study session will be to develop a common understanding and definitions of the three land use types called out in the Comprehensive Plan: mixed use, transit-oriented residential, and village residential. The design consultants will present definitions of each use and visualizations using photos of local and nearby projects that have desirable elements of those uses. Sample prototypes of each land use will also be presented and the process of developing a form code from prototypes will be explained. Finally, the consultants will outline potential areas of the City that might be considered for each land use, including some specific sites from the City’s housing sites inventory. The ZOU economic and parking consultants will also be on hand to answer questions and to gain insight from the comments of the Council and P&TC. A binder of materials has been prepared for the study session, including: Brief issues papers for each of the three land uses; mixed use, transit-oriented residential, and village residential; describing the primary components of each and outlining key issues for discussion. Sample prototypes of each land use, based on typical tot sizes in Palo Alto and some basic development assumptions. These are not intended to be recommended prototypes, but are useful to discuss the process of developing desirable prototypes upon which to base a form code. Maps depicting areas of potential application of the three land use types, including identification of some of the City’s targeted housing sites for which prototypes may be developed. A copy of a visual presentation and listing of existing developments in Palo Alto and surrounding communities, showing some of the desirable components of mixed use, transit-oriented residential, and village residential for incorporation into design prototypes. An outline of economic criteria and the methodology that the economic consultant will use to evaluate prototype feasibility. A list of the City’s housing inventory sites from the Housing Element and an accompanying map. Relevant Comprehensive Plan pages discussing the three land use types. A discussion paper on New Urbanism, dated January 25, 2002, prepared by Joel Russell as background for the ZOU. Relevant articles dealing with transit oriented development and mixed use. A summary of progress to date for the ZOU is attached to this staff report. CMR: , page 2 of 5 Key Issues The consultants’ issue papers have outlined a few critical policy issues to be addressed for each of the three land use types: Mixed Use o Should a residential component of mixed use be required in order to increase base density, FAR or height limitations over commercial allowances, or are commercial/office or other nonresidential mixes desirable as well? In what circumstances, if any, should shared parking and parking reductions be recognized for mixed-use development? Should mixed use be required in some areas, or only allowed and perhaps encouraged? What are appropriate design considerations to promote smooth transitions to adjacent uses? Transit Oriented Residential o o Should transit-oriented residential also include a mixed use component to facilitate trip reductions and pedestrian orientation? To what extent, if any, should parking reductions, or maximum parking ratios, be allowed for transit-oriented residential? Should transit-oriented residential be applied as an overlay, within proximity to rail stations, but protecting adjacent low-density residential areas? Should transit- oriented residential be expanded to include major public transit corridors, such as E1 Camino Real? What are important compatibility and ~transitions considerations to consider with adjacent uses? Village Residential Is village residential appropriate as a transition from low density residential to higher intensities or commercial uses, or as infill in some R-1 and R-2 areas, or as an option in the RM-15 zone, or in all of those7 Are parking reductions appropriate in village residential, similar to single family residential7 What are appropriate means for applying village residential standards; base zero, overlay, conditional use permit? CMR:Page 3 of 5 Discussion of these issues by the Council and P&TC will help guide staff and the consultants in preparing draft prototypes and further refining where these land uses might apply. Friday Afternoon Symposium On Friday afternoon, July 18, from 2:30 to 4:30 p.m., a related symposium will be held in the Council Chambers. The focus of this session is to provide more exposure to the principles of New Urbanism and the concepts of developing prototypes for the three land use types. A guest speaker will review the principles of New Urbanism for approximately the first half of the symposium. The ZOU design team will then describe these development types and present a virtual tour of local sites that might serve as desirable prototypes for mixed use, village residential or transit oriented uses. The economic and parking consultants will also make brief presentations to outline how economic and parking factors might be considered in the development of prototypes and a form code. All Council and P&TC members and other interested parties are invited and encouraged to attend. Material presented Friday will not be repeated. Saturday is reserved for a discussion of policy issues related to application of zone districts in appropriate locations. The binder will also serve as useful background for the Friday afternoon symposium. Public Outreach Subsequent to the study session, the consultants will be developing draft prototypes for the various land use types, along with refining the areas of the City where each may apply. It will be necessary to review these concepts with development professionals, property owners, community organizations and residents prior to offering recommendations to the P&TC. A series of focus/community groups for each land use type are anticipated, along with at least two broader community workshops to review the implications of mapping areas with these uses and the transition standards that might be incorporated to address parking and compatibility impacts. The intent of the public outreach effort is to be sure that all interests provide input to these issues, whether through participation in focus groups or community workshops or, ultimately, at public hearings. An extensive list of residents, housing groups, development professionals, and business organizations has been developed for the ZOU, and all will be included as participants in review of these proposals. Staff is interested in comments from the Council and P&TC as to how to more effectively engage all of the community while allowing the project to move forward in a timely manner. RESOURCE IMPACT Contracts and budgeting are in place for consultant and staff work to carry out the completion of the ZOU. CMR:Page 4 of 5 POLICY IMPLICATIONS This effort will directly address policies outlined in the 1998-2010 Comprehensive Plan, especially those to develop criteria for mixed use, village residential, and transit-oriented residential land uses. ATTACHMENTS Summary of ZOU Progress, July 2003 Zoning Ordinance Update Binder, dated July 19, 2003 (under separate cover) PREPARED BY: LUSARDI-~ ~lanning Manager DEPARTMENT HEAD REVIEW: CITY MANAGER APPROVAL: STEVE ;LIE Director of Planning and Community Environment Assi"stant City Manager CMR:Pagg 5 of 5 Department of Planning and Community Em. ronment Planning Division June 2003 ZON~G ORDINANCE UPDATE SUMlYL~RY OF PROGRESS Issues Identification. Initial issues were identified through focus groups, community workshops, the Zoning Ordinance Update (ZOLY) web page, and meetings with staff, boards, and Commissions. The issues last amounted to more than 400 concerns, since culled and grouped into about 200 issues. (See attachment for the top 13 issues that were identified). Web Page. A ZOU web page was created on the City’s .web site, and is re=re.flatly updated to include discussion papers and reports prepared for the Planning and Transportation Commission (P&TC), as well as upcoming meeting dates and contact information. Seminars. Seminars were conducted by outside consultants regarding the preparation of an updated zoning ordinance and about the environmental (CEQA) review process. The P&TC, Council, staff and the public attended. Discussion Papers. Discussion papers were prepared regarding a variety of zoning related topics, including format and organization, land uses and classifications, and New Urbanism and form codes. These papers were presented to the P&TC and are available on the ZOU web page. Public Workshops. Public workshops have been conducted to discuss zoning issues related to the Housing Element and to solicit input on possible approaches to second units. P&TC Study Sessions. TlAe Planning and Transportation Commission has conducted 22 study sessions or meetings to discuss issues outlined in the discussion papers, zoning of industrial and manufacturing districts, second dwelling units, and urban design prototypes and-form code approaches. In addition, the P&TC had one joint meeting with the City Council and the Council has conducted three study sessions to review work progress, including one to review the initial format and organization of the revised code, another to consider preliminary recommendations for the industrial and manufacturing districts, and another to review the initial urban desi~ma approach. Preliminary Format. A preIimina~ format for the revised ordinance has been developed to group districts into chapters, and to use tables to outline allowable uses and required development standards. The revised format should make the ordinance more readable, and will include extensive graphics as well. Industrial and Manufacturing Districts. Preliminary recommendations for changes to the industrial and manufactm-hng districts have been offered by the P&TC and reviewed ZOU Stares - June 2003 6/19/03 Page I of 3 by the Council. These recommendations were preceded by several focus ~oup meetings with industrial users and with residents, as well as by three Commission study sessions and a field tour of the relevant zone districts. Some modifications related to biotech and research and development uses are under re,dew by staff and a work~oup of P&TC and ARB members, and a focus ~oup to discuss further changes was held with biotech representatives in late May. Urban Design and Form Code. Extensive urban design analysis has been conducted by a team of urban designers, to identify and illustrate design constraints to multi-family, 1Nxed use, village residential, and transit oriented development types. Examples of sample proto.types for some of those development types have also been prepared, consistent with Comprehensive Plan goals. This work will result in the development of revised standards based on desirable prototype designs and a form code component of the updated ordinance. In addition to their presentations to thg P&TC, the consultants have also met with the ARB three times and once with the HRB. 10.Second Units and Low Density Residential Districts. In addition to the initial workshop on second units, staff has developed an ordinance (adopted by City Council on June 16th) to implement recent State le~slation regarding seco.nd units. Other second unit criteria are under review by staff mad a work~oup of P&TC members. Discussion of other possible modifications to low density residential zoning districts has been initiated with the work~oup as well, including changes to the Individual Review criteria and miscellaneous issues, such as how basements are defined and counted in floor area calculations. 1i. t2. Housing Element Policies and Sites. Housing Element policies affecting the zoning ordinance have been identified and preiiminary discussion has begun among staff and the P&TC work~oup and the urban design team as to how to approach these issues. Simultaneously, ZOU staff has initiated rezoni_tlg of three sites identified in the Housing Element to be reclassified for housing or higher densities than currently exist. Parking: A parking consultant has been retained to review par’ldng criteria in the ordinance and to suggest alternative approaches where appropriate. An initial technical memorandum has been prepared and distributed to a P&TC parking work~oup and to the Commission as a whole. Focus goups have been conducted ~dth developer representatives and with community, residents to better understand the nature of parking concerns. 13.Environmental Review. An environmental consultant has been retained to track the progess of the ZOU and to identifs, appropriate changes to minimize environmental impacts, as well as an overall approach to environmental review. The consultant has reviewed potential impacts of changes to the industrial and manufacturing districts and of expanded second trait pro~ams, and has recommended an initial set of performance standards for commercial and industrial uses. The Comprehensive Plan EIR has also been reviewed, and the consultant has discussed proposed options for CEQA compliance with staff. ZOU Status - June 2003 6/19/03 Page 2 of 3 14.Economic Implications. An economic consultant has been retained, primarily to test the financial feasibility of design prototypes developed by the urban design team. The economic consultant will also evaluate, on a limited basis, the broader economic implications of the zoning ordinance update for the City’s economic base. The consultant has recently made presentations to the Chamber of Corm~aerce and to the City Manager’s Economic Base Committee. 15.Public Outreach. Staff and the various zoning consultants have conducted ex*ensive public outreach to date, including focus ~oups, community workshops, and public meetings, as well as through the City’s web site. Staff regularly updates business and. civic goups on pro~ess on the ZOU, and occasionally uses the Manager’s Memo to communicate upcoming events to the public. 16.Symposium and Study Session on Land Use ProtoU,pes. The City Council and Planning Commission will conduct a joint study session on Saturday, July 19, 2003 to discuss mixed use, village residential and transit oriented residential land use types and where in the City such land use designations migJat be applied. The study session will be preceded on Friday, July 18, 2003, with a lunchtime symposium of speakers pro~riding a backgound on New Urbanist principles and a ~4rmal tour of sites in Palo Alto and surrounding communities, which might provide good examples of desirable components of a "form" code for Palo Alto. ZOU Status - June 2003 6/19/03 Page 3 of 3