HomeMy WebLinkAboutStaff Report 4172
City of Palo Alto (ID # 4172)
City Council Staff Report
Report Type: Action Items Meeting Date: 11/18/2013
City of Palo Alto Page 1
Summary Title: Applying Edgewood Public Benefit Penalty
Title: Public Hearing: Request For Council’s Direction On Whether to Apply
The Edgewood Plaza PC $94,200 Public Benefit Payment to the Construction
of a Sidewalk along West Bayshore Road or a Historic Restoration Fund for a
Public Building.
From: City Manager
Lead Department: Planning and Community Environment
Recommendation
Staff recommends that Council direct staff to apply the penalty paid for the Edgewood Plaza PC
Amendment for the design of a sidewalk project along West Bayshore Road, historic
preservation of a public building, or another Council directed purpose.
Executive Summary
The City Council certified a Final Supplemental Environmental Impact Report (FSEIR) and
approved a Planned Community (PC) Zoning Amendment for the Edgewood Plaza Shopping
Center mixed use project on October 7, 2013. The project was an amendment to the original
PC Zoning approved on March 19, 2012, allowing redevelopment of the historic, three-building
shopping center, including the relocation and rehabilitation of a historic building, ten new single
family homes and a new 0.20 acre park. The two historically significant retail buildings were to
be preserved as a primary PC public benefit: Building #2 was to be rehabilitated in place, while
Building #1 was to be disassembled, relocated on site and rehabilitated. However, the applicant
demolished Building #1 without notifying or receiving approval from the City. The FSEIR and PC
Zoning Amendment were approved by City Council to allow reconstruction of the demolished
Building #1 with all new materials. All other aspects of the project remained the same. As part
of the new public benefits for the PC Zoning Amendment, the applicant was required to provide
a penalty payment of $94,200. Council directed staff to return to the City Council within 90
days to determine whether the penalty should be allocated to design and construction of a
sidewalk along W. Bayshore Road (near the project), towards a future restoration of a historic
public building or towards another Council directed purpose.
City of Palo Alto Page 2
Background
At its October 7, 2013 hearing, the City Council certified a Final Supplemental Environmental
Impact Report (Final SEIR) and approved a request by Sand Hill Property Company, for an
amendment to the Edgewood Plaza Mixed Use Project Planned Community Zoning to allow one
of two historically significant retail buildings of the Edgewood Plaza Shopping Center to be
reconstructed with all new materials. The amendment was requested following the issuance of
a stop work order in September 2012, because the historic Building #1, which was to be
disassembled and reconstructed onsite, was illegally demolished.
A Planned Community (PC) zoning was originally approved by the City Council on March 19,
2012 to allow the redevelopment of an existing vacant and historic shopping center. The
redevelopment proposal comprised of renovation of three retail buildings, including the
relocation of one of the buildings, the addition of ten homes and construction of a new 9,000
square foot park. The two existing commercial buildings (Buildings #1 and #2) were deemed
historic resources and approved for rehabilitation. Building #3, the former Lucky market
building, currently occupied by Fresh Market, is not considered a historic resource. Building #1
was to be disassembled, relocated on the site and rehabilitated. Building #2 was to be
rehabilitated in place. As stated above, Building #1 was demolished contrary to the
requirements of the site’s PC Zoning designation. The primary public benefits for the
Edgewood Plaza project consisted of 1) the preservation of historic resources, 2) the
construction and operation of the grocery store, 3) the creation of a 0.20 acre park containing a
display highlighting Joseph Eichler’s achievements, and 4) the installation of three electric
vehicle chargers.
Discussion
The PC Zoning Amendment that allowed the reconstruction of Building #1 with all new
materials was approved with the requirement of two additional public benefits. One of the
public benefits was the requirement to install custom made windows that replicate the original
storefront window system, bringing the appearance of Buildings #1 and #2 to a design
significantly closer to their original appearance. The original wood window frames of both
Eichler buildings were a more complex design that included narrow full-height projecting
moldings on either side of the glass, which gave the windows a streamlined, modern look.
Because the storefront glass system was a large part of the original design, this requirement
provides a significant historic benefit to the project. This addition, in some ways, will result in a
building that is more similar to the original design, for both buildings, even though Building #1
would be constructed of all new materials.
City of Palo Alto Page 3
The second public benefit required for the PC Amendment was the payment of $94,200 as a
penalty for illegally demolishing Building #1. Staff had proposed that the penalty payment
could be used (1) for the restoration and rehabilitation of a publicly owned historic resource in
Palo Alto or (2) construction of a sidewalk from the north of the project side, Channing Avenue,
to the border between Palo Alto and the city of East Palo Alto. The Council may also wish to
use the funds for another purpose.
Historic Rehabilitation Contribution
If the historic rehabilitation or restoration option is chosen, the funds could be set aside and
made available for use toward a specific project when directed by the Council. Staff would
identify a potential project and would return to the Council for final authorization. This public
benefit is appropriate because the proceeds would be for historic rehabilitation in exchange for
the loss of a historic resource.
The funds if dedicated to historic rehabilitation could be applied to a variety of projects. Such
projects could include (but would not be limited to) the following:
1. The University Avenue Multi-modal Transit Depot. The downtown station is the second
busiest for the Caltrain system and a significant structure for the City. The Streamline
Modern style station is designated as a Category 1 resource on the City’s historic
inventory and is also on the National Registry of Historic Places. The money could be
used to repaint the building, which has not been updated for a few years.
2. The Lucie Stern Community Center located at 1305 Middlefield Road. The community
center was designed noted Palo Alto architect Birge Clark and is designated as a
Category 1 resource on the City’s historic inventory. There are two potential projects
that could benefit from this funding. The two projects consist of restoration and
rehabilitation of the existing brick pavers located onsite and/or upgrading of the existing
single-pane glass with custom fabricated double-insulated panes. The paver project
would consist of repairing of about 1,000 lineal feet of the original pathways. The bricks
would be moved temporary to allow leveling of the sub-base with gravel and removal of
protruding tree roots and rocks. Broken or unsafe bricks would be replaced with new
matching bricks. The window project would allow better sound control and insulation
for the facility while allowing the appearance of the historic building to be retained. .
3. Roth Building, located at 300 Homer Street. The one and two story Spanish Eclectic
style, U-shaped concrete building was also designed by Birge Clark and is designated on
the City’s historic inventory as a Category 2 building. It is being remodeled to be the
new home for the Palo Alto Art League. The fund could be used for general
City of Palo Alto Page 4
maintenance and clean up following the completion of the remodel.
4. Palo Alto Post Office, located at 380 Hamilton Avenue. Designed in 1932 by Birge Clark,
the building was one of the first single purpose post office facilities in the nation.
Recognized for keeping with the local Mediterranean architectural theme of arcades
and tile roofs, the building has been placed on the National Registry of Historic Places.
The structure is iconic both in its public function and influencing the architectural
character of the downtown area. If the City acquires the post office, the monies could
be used towards the rehabilitation of the building for future use. (Note that the City has
submitted a bid to acquire the Post Office but any prospective sale will not be
completed by the time this matter is heard.)
West Bayshore Road Sidewalk
The second option for Council’s consideration is funding the design phase of a new sidewalk on
the west side of West Bayshore Road between Channing Avenue and San Francisquito Creek
(East Palo Alto Border). During the initial approval of the Edgewood Plaza project residents
requested that the design and construction of the sidewalk be considered as an element of the
project. In response to the requests the City incorporated the project as a sidewalk gap closure
element within the Bike & Pedestrian Transportation Plan (adopted July 2012). The money
would be applied to a future Capital Improvement Program (CIP) project.
Staff has received correspondence and a petition expressing support by area residents for the
sidewalk construction during the October 7th council hearing. Prior to the hearing the Planning
and Transportation Commission had recommended that a survey be taken of residents of
properties located between Edgewood Drive and West Bayshore Road of whether they support
the sidewalk because they would be the most impacted. A survey has been mailed out to the
approximately 20 residents soliciting their input. The survey results will not be available in time
for the distribution of this staff report, therefore an update will be provided at the public
hearing.
Staff has consulted both with Transportation and Public Works staff regarding the feasibility of
the construction of the sidewalk. The cost estimate for design and construction of sidewalk on
one side of West Bayshore from Channing Avenue to San Francisquito Creek, length of
approximately 1,600 feet, is $473,000. The design estimate, for which the penalty may be
applied, is $62,000, while the construction cost estimate is$411,000.
West Bayshore Road has no formal parking restrictions today but the roadway is too narrow to
allow parking. Due to the lack of parking restrictions West Bayshore Road does have up to 20
vehicles regularly parked on the street within unpaved shoulder areas. The construction of
City of Palo Alto Page 5
sidewalks in this area will include the formalization of parking restrictions; therefore the 20 cars
would likely be displaced. The project also includes drainage improvements to protect adjacent
residences and trees. The construction of the sidewalk would directly implement a goal of the
Bike & Pedestrian Transportation Plan.
Policy Implications
The requirement to use the funds for the two potential projects is consistent with the
Comprehensive Plan and the Bike and Pedestrian Transportation Plan. Applying the funds
towards historic rehabilitation would directly support Goal L-7: Conservation and Preservation
of Palo Alto’s Historic Buildings, Sites and Districts. It would also support Policy L-51, which
supports public and private upkeep and preservation of historic resources and Policy L-52,
which encourages the preservation of significant historic resources owned by the City of Palo
Alto. Applying the funds towards the construction of the sidewalk would directly address an
identified sidewalk gap, as recognized in the City’s Bike and Pedestrian Transportation Plan. It
also supports Goal T-3: Facilities, Services and Programs that Encourage and Promote Walking
and Bicycling. Policy T-16 specifically supports the creation of connecting paths for pedestrians
and bicycles. Although there is not a dead end street, the lack of a sidewalk effectively impedes
access.
Resource Impact
Once the City Council decides the use of the funds, staff will bring forward a recommendation
to appropriate the funds towards that use as part of the Mid-Year Budget adjustments or the
annual budget process.
Environmental Review
Pursuant to the requirements of the California Environmental Quality Act (CEQA), the two
options would be categorically exempt as follows:
1. Construction of sidewalk would be categorically exempt per CEQA section 15304 (Class
4). Minor Alterations to Land Class 4 consists of minor public or private alterations in the
condition of land, water, and/or vegetation which do not involve removal of healthy,
mature, scenic trees except for forestry or agricultural purposes.
2. Rehabilitation of historic buildings would be categorically exempt per CEQA sections
15301(Class 1) and 15303 (Class 3) CEQA because they would be considered minor
alterations to the exterior of an existing facility or other minor modifications upon
determination that the project complies with the Secretary’s Standards for
Rehabilitation.
City of Palo Alto Page 6
Attachments:
Attachment A: Public Comment (PDF)
Spotwood, Alicia
From:
Sent:
To:
Subject:
Elena,
Yonke/ Martin
Wednesday/ November 13/ 2013 8:34 AM
Lee/ Elena
Edgewood Plaza fine should be used for historic restoration
Sorry I won't be able to make your meeting on 11/18. Here is the comment I would have made.
As an active participant in reaching the agreement between the developer and the CC&R holders for Ed~ewood Plaza
that was used as the basis for the PC zoning, I would to comment the following comment: the Public Benefit of the PC
Zoning for Edgewood Plaza was for the historic rehabilitation of the two Eichler building. The fine for demolishing one of
the two buildings should be applied to historic restoration to be in keeping with the spirit of the PC Zoning. To use the
monies for another use would further cast doubt the commitment to the Public Benefit of PC Zoning, in general, and of
the Edgewood Plaza historic rehabilitation, in particular. Sidewalks, no matter how worthwhile, are not reflected in the
original Public Benefit-they could have been, but were not. Let's not rewrite the spirit or essence of the Public Benefit
by redirecting the monies to other than Historic Restoration.
Thanks,
Martin Yonke
1954 Edgewood Dr.
1
Spotwood. Alicia
From:
Sent:
To:
Cc:
Subject:
Mulvey, Trish
Wednesday, November 13, 2013 11:50 AM
Council,City
Lee, Elena
Edgewood Plaza Public Benefit Payment -11/18 City Council Public Hearing
Dear Mayor Scharff and City Council Members:
In considering community needs and public benefit, instead of a sidewalk
only option, please look at a more inclusive improvement for West
~ayshore Frontage Road that includes bicycles, pedestrians, and evening +
'Itlighttime parking and be of value to our adjacent East Palo Alto neighbors
~ (My thought is an asphalt surface with "no parking from here to the
corner" signage at the bend in the road approaching Channing. FYI,
asphalt is less expensive than concrete. To my knowledge, East Palo Alto
staff have not yet been included in consideration of options.)
As I write this message, the staff report is not yet available for this item;
so I don't know what information you have about the needs for the
"Historic Restoration Fund for a Public Building." I hope you will
o90nsider deferring your decision about this item until you have given the
Uistoric Resources Board an opportunity for review and comment. Since
~lhis public benefit payment resulted from demolition of an historic
resource, it would be nice to give priority to a project that is related to that
loss.
Thanl(s for considering these comments.
'Irish Mulvey
tnulvey@ix.netcom.com
1