HomeMy WebLinkAboutStaff Report 6783
City of Palo Alto (ID # 6783)
City Council Staff Report
Report Type: Informational Report Meeting Date: 6/20/2016
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Summary Title: Avenidas Expansion Project Informational Report
Title: Informational Report Regarding Avenidas Expansion Project Related to
Lease Modification
From: City Manager
Lead Department: Planning and Community Environment
Recommendation
Staff recommends that Council receive this informational report regarding Avenidas’
Rehabilitation and Expansion project.
Executive Summary
This report is to inform City Council regarding the Avenidas Rehabilitation and Expansion
project at 450 Bryant Street in Downtown Palo Alto. The applicant had requested a late June
study session with Council but the June 20th and 27th agendas became too crowded with urgent
action items. The project application is a request for Architectural Review approval by the
Director of Planning and Community Environment and a Conditional Use Permit (CUP) for the
proposed expansion of use of this City-owned facility.
In order to accommodate the fast growing senior population in Palo Alto, Avenidas plans to
renovate 15,783 square feet (sf) of floor area within the existing building, demolish 2,50 sf (the
existing cafeteria), and construct a new 10,721 sf wing in order to obtain a total of 26,504 sf of
new and modernized space. The project also includes the replacement and update of old
mechanical, electrical, and plumbing systems, seismic upgrades and installation of an ADA-
compliant elevator. In order to meet the parking requirement associated with the proposed
8,129 sf net increase in space, Avenidas proposes to pay in-lieu fees into the Downtown Parking
In-Lieu Fund. The project also includes interior renovations of 15,800 sf.
The expansion of the building would result in the need for an amendment to the City’s existing
lease with Avenidas. The existing Avenidas Lease document is attached to this report
(Attachment A).
Staff is exploring making minor parking lot improvements to upgrade City Parking Lot C, in
conjunction with the budgeted Capital Improvement Project (CIP) for accessibility
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improvements planned for implementation in 2018. No budget has yet been identified for
additional improvements.
Background
Avenidas
Avenidas provides a wide range of services to older adults to support independent aging,
including health and wellness programs, transportation, workshops and classes, legal and tax
assistance, social activities, and volunteer opportunities. La Comida de California operates
within the center to serve lunch daily. Avenidas has leased the facility at 450 Bryant Street from
the City since 1976. Following completion of interior improvements in 1977, Avenidas began
operations in 1978. Avenidas currently serves approximately 350 people daily, with programs
running generally between 9 am and 5 pm. The center is closed during weekends. In 2015,
Avenidas served over 7,500 people and hosted 233 classes.
The original main building on site was constructed in 1927 and the small shed at the rear was
constructed sometime earlier. Although a dining room was constructed as an extension of the
main building and renovations have been made to the original buildings, the original main
building and shed have been designated as historic structures. The site contains limited
vegetation, consisting of small landscaped areas around the building perimeter, street trees,
and trees in a small courtyard interior to the site.
Project Site Overview
The Avenidas building is located within a block bounded by Bryant Street, Ramona Street,
Lytton Avenue and University Avenue. Avenidas has a lease with the City to occupy the
building, which was formerly in use as a City facility. The City-owned site includes Avenidas, the
City parking lot (Lot C) and the City park (Cogswell Plaza), and is bounded by Paulsen Lane (Lane
31E) at the southerly edge. The public parking lot contains 51 parking spaces. Under the terms
of its lease, Avenidas has non-exclusive weekday use of 25 parking spaces in this lot, and
exclusive access to four spaces within the lease area adjacent to Paulsen Lane. Cogswell Plaza
was originally developed in 1924 as City Hall Park. It was redesigned and renamed in 1955. It
provides benches, walkways, a small area of open lawn, and informal landscaping consisting of
trees and shrubs.
Proposed Project
The proposed project consists of demolition of approximately 2,500 square feet of the existing
structure and new construction of a 10,721 sf, three-story facility. The new facility would have
an ~11,000 sf first floor (comprised of a main lobby and reception, classrooms, small offices,
dining room and kitchen, and a rear lobby in the new atrium), a ~9,200 sf second floor
(consisting of multipurpose rooms, meeting rooms, classrooms, and administrative facilities), a
~3,300 sf third floor within the new wing (containing a fitness room, a small meeting room and
an outdoor deck), an ~818 sf shed (used for program space) and a renovated ~2,000 sf
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basement (encompassing a small auditorium). The renovation would create a designated
fitness room and create more areas for meetings, classes, and activities.
The main entry would continue to be accessed from Bryant Street. The new construction would
also update the entrance from Lot C at the rear of the building, and would involve removal of a
Camphor parking lot tree. In order to meet the parking requirement associated with the
proposed 8,129 sf increase in space, Avenidas proposes to pay an in-lieu fee to the Downtown
Parking Assessment District. To request the proposed expansion of use of this City-owned
facility, Avenidas has applied to the City for a conditional use permit.
The application for this project includes plans, applicant’s project description, a transportation
management strategies letter, arborist reports, color images, and other documents, found on
the City’s website at
http://www.cityofpaloalto.org/news/displaynews.asp?NewsID=3142&TargetID=319.
Staff is analyzing the project for compliance/consistency with architectural review findings,
context-based design criteria, zoning code regulations, Comprehensive Plan policies and the
Downtown Urban Design Guide, and with Secretary of the Interiors Standards for Rehabilitation
(SISR).
Image of the addition depicted from Bryant Street pedestrian viewpoint
The staff report to the Architectural Review Board (ARB) provides background information
about the project, which was submitted mid-March 2016 for Architectural Review and a
Conditional Use Permit. The ARB staff report is found online at
http://www.cityofpaloalto.org/gov/boards/architectural/default.asp.
The Historic Resources Board (HRB) staff report is found online at
http://www.cityofpaloalto.org/gov/boards/historic/default.asp, as are project plans, at
http://www.cityofpaloalto.org/civicax/filebank/documents/47537.
City Parcel Information
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The subject parcel is approximately 86,460 square feet (sf), or 220’ x 393’. The area dedicated
to Avenidas, including a portion of the parking lot, is approximately is 59,419 sf. In 1965 the
City dedicated Cogswell Plaza for park and recreation purposes.
Avenidas’ Lease
The City leases the existing 17,400 square foot (sf) building at 450 Bryant Street to Avenidas.
The lease line (shown in dashed line on the above image) is located several feet outside the
building wall on all sides of the building, except along the easternmost wall where it is
coterminous. The leased area includes the paved area just south of the building along the alley
known as Paulsen Lane (labeled 13E on above image). This leased area adjacent to Paulsen
Lane provides “four” parking spaces for Avenidas’ use and access to Avenidas’ existing and
proposed trash and recycling enclosure. Avenidas also has ‘non-exclusive’ access to 25 parking
spaces in Lot C.
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Lot C
Source: Google Maps
The current lease requires that the City Manager authorize any building improvements that
cost more than $10,000. On October 19, 2015, Council unanimously voted to contribute
financial support of $5 million dollars towards the $18 million Avenidas capital campaign, from
revenue sources as of yet to be identified
(http://www.cityofpaloalto.org/civicax/filebank/documents/49560). The money is intended to
be used to make necessary seismic and other improvements to the existing building. The actual
funding will occur in the next two fiscal years.
On June 23, 2014, Council approved a request to issue a Notice of Intent to award a 50-year
lease to Avenidas to allow continued use of the building for senior services
(https://www.cityofpaloalto.org/civicax/filebank/documents/42767).
Project Review Process
The Avenidas Rehabilitation and Expansion project application was submitted mid-March for
review by the HRB and ARB prior to action by the Planning and Community Environment (PCE)
Director on the CEQA document, Architectural Review application and the Conditional Use
Permit (CUP) requested for Community Facility use of the building and expansion thereto. The
project involves downsizing of the existing dining room used by La Comida to provide low cost
meals to seniors. Council would not be involved in approving the building design unless staff
receives:
(1) an appeal of the Director’s decision on the AR application, following HRB and ARB
recommendations, and/or
(2) a request for hearing of the CUP, which is conducted initially by the Planning and
Transportation Commission (PTC).
Discussion
Future Lease Modifications
Lot C
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Following completion of the Planning Entitlement and Building Permit processes for Avenidas’
project, staff plans to present to Council modifications to the existing lease with Avenidas to
reflect the larger facility and CUP. Council approval of lease modifications would occur prior to
occupancy of the expanded center.
Lot C Parking Lot
Parking Lot C, which provides 52 parking spaces, is scheduled for repaving in fiscal year 2018,
but this project presents an opportunity to perform this work in coordination with Avenidas’
project. A recent report shows accessibility barriers, issues with stall width and length, and
signage. City Council could request that staff work with the applicant’s civil engineer on a
parking lot plan that shows these and other improvements such as landscaping, irrigation and
drainage, and prepare a cost estimate for these other improvements. At minimum, the timing
of the City’s and applicant’s projects should be coordinated, to avoid City crews tearing up
improvements made by Avenidas to fix Lot C following/during construction/staging, and vice
versa.
Timeline
Formal HRB and ARB hearings on the project are anticipated to be held late this summer. If the
Director’s action on the Architectural Review and/or Conditional Use Permit applications is
appealed or requested to be heard, Council can anticipate reviewing the project prior to the
end of 2016. As noted, staff anticipates returning to Council with a lease modification to
address the Conditional Use Permit and expanded building at a future date, if approved. Staff
may also come forward with a Public Private partnership or other type of agreement to
memorialize the City’s financial contribution. Council may direct staff to return to Council for
further discussion about exploring modifications to the CIP improvement plans for Lot C.
Resource Impact
The staff resources to process the Avenidas project application are covered via cost recovery
fees for development applications. Other costs have not been determined related to potential
explorations identified above, but Council could direct staff to prepare cost estimates. On
October 19, 2015, Council unanimously voted to contribute financial support of $5 million
dollars towards the $18 million Avenidas capital campaign from revenue sources as of yet to be
identified.
Environmental Review
The proposed Avenidas Rehabilitation and Expansion project is not exempt from review under
the California Environmental Quality Act (CEQA), given the scope of work and the historical
listing of the building on the City’s historic inventory and California Register of Historic Places.
The City’s consultant is preparing an initial study and the City anticipates releasing a (Mitigated)
Negative Declaration for public comment in July. The Director would review and act on a
(Mitigated) Negative Declaration.
Attachments:
Attachment A: Lease City of Palo Alto 2015 part 1 (PDF)
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Attachment A: Lease City of Palo Alto 2015 part 2 (PDF)
Attachment A - Part 1
Attachment A - Part 2