HomeMy WebLinkAboutStaff Report 4294
City of Palo Alto (ID # 4294)
City Council Staff Report
Report Type: Study Session Meeting Date: 12/2/2013
City of Palo Alto Page 1
Summary Title: Initiate Community Conversation on Planning and
Transportation Matters
Title: Initiating a Community Conversation on the Future of the City Including
the Comprehensive Plan, Planned Community Zoning, Parking and Traffic
Strategies and Related Matters
From: City Manager
Lead Department: Planning and Community Environment
Recommendation
Staff recommends that Council conduct a study session to discuss initiation of an expanded
public dialog regarding the future of the city, including ongoing efforts to update the City’s
Comprehensive Plan, re-examination of Planned Community (PC) district zoning, and other land
use and development issues.
Executive Summary
On November 12, 2013, Mayor Scharff and City Manager Keene removed two large
development projects from the Council’s agenda and scheduled this initial study session on the
future of the City. This study session provides an opportunity for public input and
Councilmember questions and comments regarding land use and development issues in the
City. Possible issues for discussion include:
How should we initiate and engage in a robust public dialog about the future of the City,
especially as it relates to existing commercial corridors and Pedestrian and Transit
Oriented Development (PTOD) districts?
How should this dialog relate to ongoing efforts to update the City’s Comprehensive
Plan and projects such as the Downtown Cap study, 27 University outreach, etc.?
How should we re-examine the Planned Community (PC) process and address the
community’s concerns about the exchange of new development entitlements for public
benefits?
City of Palo Alto Page 2
How should we ensure transparency, consistency, and predictability for development
applications that conform with current zoning?
Which traffic and parking solutions can be implemented in the short term, and how will
the cumulative impacts analysis associated with the Comprehensive Plan Update inform
decision making in the long term?
Are there other questions related to zoning and land use that should be considered
separately or in tandem with the Comprehensive Plan update?
At the closure of the study session, staff will attempt to summarize direction from the Council.
One or more action items will be brought back to the Council for formal direction early in the
2014.
Background
Palo Alto will be a vital, attractive place to live, work, and visit. The elements that make
Palo Alto a great community – its neighborhoods, shopping and employment centers,
civic uses, open spaces, and natural resources – will be strengthened and enhanced. The
diverse range of housing and work environments will be sustained and expanded to
create more choices for all income levels. All Palo Alto neighborhoods will be improved,
each to have public gathering spaces, essential services and pedestrian amenities, to
encourage less reliance on the automobile.
Vision Statement from the Palo Alto 1998-2010 Comprehensive Plan
The Comprehensive Plan is the City’s guiding planning document, setting forth the community’s
vision when it comes to land use and related issues. Each time an individual project or rezoning
is considered, that decision is required to be consistent with the policy framework of the Plan.
This does not mean that every decision is required to be consistent with every policy and
program of the Plan, but each must be consistent on balance with the Plan as a whole, and with
any mandatory policies of the Plan.
Palo Alto’s current comprehensive plan was adopted in 1998 and has served this community
well. It envisions a city of neighborhoods and a vision for the future that is expressed through
the major themes of the document:
Building Community and Neighborhoods;
Maintaining and Enhancing Community Character;
City of Palo Alto Page 3
Reducing Reliance on the Automobile;
Meeting Housing Supply Challenges;
Protecting and Repairing Natural Features;
Meeting Residential and Commercial Needs, and
Providing Responsive Governance and Regional Leadership
The Comprehensive Plan articulates key values, expressed through policies and action items
including such things as a limit on non-residential growth in the Downtown area (Program L-8)
and throughout the City (Policy L-8), promoting decisions that encourage walking, bicycling and
public transit use (Policy T-1), development of strategies to increase housing density and
diversity in appropriate locations (Policy H-2) and encouraging new businesses that meet the
City’s business and economic goals (Policy B-9).
In general, the Comprehensive Plan establishes a land use regime that is protective of low-
density residential neighborhoods (typically zoned R-1, R-2, and RMD) and open space areas. It
is supportive of commercial enterprises, but effectively targets growth and change to fully-
developed commercial areas such as Downtown, the California Avenue area, Stanford Shopping
Center and the Research Park, El Camino Real and interstitial areas comprising approximately
5% of the City.
The Comprehensive Plan also recognizes the challenges in providing diverse and high-quality
housing opportunities. Again, it is protective of existing residential neighborhoods, but
supportive of higher density in appropriate locations. The City has a long history of support for
affordable housing, including the adoption of an inclusionary housing ordinance in the mid-
1970s, the establishment of affordable housing impact fees, and support for local, state and
federal programs that help to preserve and enhance the City’s affordable housing supply. The
initial Housing Element adopted with the Comprehensive Plan and the revised Housing
Elements that have been adopted in conformance with State requirements since that time have
all contained policies and programs that address the housing challenges the City continues to
experience.
City of Palo Alto Page 4
Palo Alto 1998-2010 Comprehensive Plan, Land Use Map (as amended through 2013). Single-
family neighborhoods are shown in yellow; open space and public uses are green.
The Comprehensive Plan Amendment
Unfortunately (since the plan is such a good one), the future that the Comprehensive Plan
envisioned was 2010, and in 2006, the Council directed staff and the PTC to begin work on an
update. City Council initiated the Comprehensive Plan amendment project in 2006. Funding for
the project was allocated in 2007 and a consultant team was selected in 2008. The amendment
was intended not to overhaul the Comprehensive Plan and the Council adopted work program
reflects the primary purposes of the amendment which includes:
Extending the horizon year of the Plan to 2020 (this was later extended to 2025),
Updating baseline data and growth projections,
Modifying the vision statements, policies and programs as needed to address the
focus of the Comp Plan Amendment,
Ensuring the retention of sufficient land for neighborhood-serving retail uses and
commercial growth,
City of Palo Alto Page 5
Preparing concept plans for East Meadow Circle area and California Avenue area
and identify appropriate land use and zoning changes,
Adequately mitigating impacts of increased housing on community services such as
parks, libraries and schools; and
Addressing the City's commitment to climate protection and sustainability.
City Staff worked with the PTC between 2008 and 2010 to review the existing elements,
background reports on baseline growth topics, and information regarding the two concept area
plans.
In 2010, the PTC and Council held a joint study session to address the Comp Plan amendment
work plan, including the recommended approach to the Housing Element update. In addition,
the Council provided direction regarding updated growth projections, updates to the Comp
Plan structure, vision, goals, policies and program statements, and additional work regarding
review of the South El Camino Real Design Guidelines and LEED for neighborhood Development
(LEED-ND).
From 2010 to present, City staff and PTC sub-committees have met to review each element of
the Comp Plan. The Comp Plan subcommittee process has been effective in identifying
necessary changes to the Comp Plan including creating a clearer, cohesive and less redundant
policy document. The original work program to update the structure, vision, goals and program
statements has developed into a more robust update as a result of the subcommittee process.
This involved rearranging chapters and elements and substantially changing the format of the
existing plan. New policies and programs are included to clarify existing policies and programs
and to accommodate new State requirements. As of November 2013, the PTC has reviewed
and recommended inclusion of the following draft elements into the Comp Plan amendment:
Housing
Land Use
Transportation
Community Services & Facilities
Natural Environment
Work continues on the Business & Economics and Governance elements. It is expected that all
elements will have been reviewed by the PTC prior to the end of Q1 2014. Please se e
Attachment A for more information regarding the ongoing Comprehensive Plan amendment
process.
City of Palo Alto Page 6
Community Changes Since the Comprehensive Plan was Adopted
It’s obvious to most people that the economic, social, and environmental landscape has
changed significantly since the Comprehensive Plan was adopted in 1998. The City has
experienced boom and bust cycles in the economy, affecting employment, housing demand,
and office development. The City has been relatively well-positioned to adapt to these cycles
and although we’ve had to cope with lean budget years and reductions in city services, the
strength of our commercial sectors, residential property values, and school district
achievements have brought us through difficult times. As a result, the City overall enjoys a high-
level of resident, visitor and business community satisfaction.
Despite emergent concerns about traffic and parking (issues Palo Alto shares with other cities
across the Bay Area), citizens continue to rank Palo Alto very high in the annual City Survey
conducted by the National Research Service. Recently, Palo Alto was named #1 on the Top 100
Best Places to Live by Livability.com, a national website that ranks quality of life amenities of
America’s small and mid-sized cities. It certainly could be argued that the changes Palo Alto has
experienced over the past 15 years have contributed to the success and the challenges our city
continues to experience. The following charts illustrate some of the change we’ve experienced:
City of Palo Alto Page 7
City of Palo Alto Households and Housing Units
30,000
Jobs within City of Palo Alto
100000
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70000
60000
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40000
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70000
10000
0
7000 7005 2010 2011
Horizon Years
City of Palo Alto Page 8
Source: City of Palo Alto Traffic Counts for 1999 and 2013
City of Palo Alto Page 9
Source: Caltrans Annual Traffic Counts
City of Palo Alto Page 10
Recent Development and Community Concerns
Palo Alto has successfully navigated out of the “Great Recession” and is now facing new
challenges and concerns regarding the pace of development, although development over the
last 15 years has not exceeded the two non-residential development limits adopted as part of
the 1998 Comprehensive Plan, as shown below. Also, most of the pending development
applications that can be characterized as “major” proposals, in the sense that they would add
10,000 gross square feet or more, conform to the zoning regulations that were established to
implement the Comprehensive Plan.
City of Palo Alto Page 11
1989 – 2013 Non-Residential Development within the 1989 Land Use Study Areas
Total Development Potential – Growth Monitoring 3,257,900 sq. ft.
Net Non-Residential Square Feet Gained thru August 2013 1,570,033 sq. ft.
Remaining Square feet in Growth Monitoring 1,687,867 sq. ft.
City of Palo Alto Page 12
Commercial Downtown Zone District Non-Residential Growth Cap
Commercial Downtown Zoning Districts Growth Cap 350,000 sq. ft.
Net Non-Residential Square Feet Gained thru August 2013 256,939 sq. ft.
Remaining Square feet in Growth Monitoring 93,061 sq. ft.
City of Palo Alto Page 13
In-process Major Development Projects as of November 12, 2013
Address Project Description Status PC?
640 WAVERLEY Prelim ARB mixed-use building with
two dwelling units and commercial
area of 10,463 sf (demo existing one
story).
Zoning issues under review no
500 UNIVERSITY AV New three-story building (26,806 sf
replacing 15,899 sf) with ground floor
retail, two floors of office and two
levels below grade parking.
First and second ARB Prelim
completed, ARB 12/5/13
no
2500 EL CAMINO
REAL
New four-story mixed use project with
70 residential units (one, two and three
bedroom units) of BMR rental housing
and approximately 7,300 square feet of
commercial space.
ARB Prelim completed; formal
app received 11/7
no
261 HAMILTON Addition to University Arts Building
6,900 sf; generating 15K TDRs without
parking exceptions.
Formal application submitted no
636 MIDDLEFIELD Prelim ARB for three residential units. ARB Prelim to be scheduled no
777 WELCH Prelim ARB for 22,820 sf of new
construction (demo 3,048 sf).
ARB Prelim scheduled 11/21/13 no
429 UNIVERSITY Prelim ARB for one dwelling unit and
16,500 sf commercial (existing 6,600
sf).
ARB Prelim 11/7/13 no
180 EL CAMINO REAL Prelim ARB for 133,580 sf retail and
renovation (replacing same sf).
ARB Prelim 10/3/13 no
385 SHERMAN Prelim ARB for 55,566 sf mixed use
building.
ARB Prelim 12/5/13 no
2555 PARK Formal ARB for 23,269 sf office; demo
existing building.
Historic review initiated no
2609 ALMA Prelim ARB for four-unit multi-family
residential condos.
ARB Prelim January 2014 no
City of Palo Alto Page 14
In-process Major Development Projects as of November 12, 2013
Address Project Description Status PC?
441 PAGE MILL RD New 32,524 sf mixed use building
(21,540 sf commercial and 8 residential
units) and one level of below grade
parking.
Formal submittal of a Site and
Design application on 7/29/13
no
2609 ALMA Preliminary Architectural Review Board
review of a new four unit multifamily
residential condominium project.
Prelim ARB no
3877 ECR Preliminary ARB review for new two
story mixed use project in at the
Compadres site. 18 dwelling units and
3,000 sf. commercial
Prelim ARB no
395 PAGE MILL ROAD
AND 3045 PARK
BLVD
Planned Community and Comp Plan
Amendment for New Office Buildings,
Structured Parking and Public Safety
Building
PTC Initiated PC 7/10/13; ARB
review 9/19/13. Applicant
holding community meetings
yes
1050 PAGE MILL
ROAD
Prelim ARB for a 284,000 sf. office
building
ARB 12/5/13 no
816 SAN ANTONIO
AV
Minor ARB approval to allow a 8,200
square foot structure for Hertz Rent-a-
Car.
Notice of incomplete issued to
applicant
no
240 HAMILTON AV Major ARB and variance to allow a new
15,000 sf mixed use building.
ARB Approved 7/18/13,
appealed
no
1875 EMBARCADERO
RD
Site and Design Review for the golf
course reconfiguration project.
Pending Council review PTC
and ARB completed
no
3980 EL CAMINO
REAL APT 001
PC Application for conversion of Buena
Vista Mobile Home Park.
Project under review yes
2755 EL CAMINO
REAL
PC for a 19,563 sf, four story mixed use
building with three stories of below
grade parking. CC prelim was February
2013.
9/11/13 PTC Planned
Community initiation continued
to date uncertain
yes
City of Palo Alto Page 15
The development described above represents a portion of the total number of projects under
review by Planning staff and other City representatives; it includes projects that would do any
of the following: add over 5,000 square feet of net new floor area, require design review under
the Site & Design process, consist of a major subdivision and/or a Preliminary Review of a major
project. As illustrated in the charts in the preceding section, the Development Services
Department issues a significant number of building permits each year, with total building
permit valuation approaching $600 million in FY 2013.
New developments typically represent an increased intensity of use at each site as compared to
the existing conditions. This increased intensity of use can place additional demands on the
roadway network and automobile parking infrastructure. Citizens have clearly communicated
their concerns regarding the perceived increase in automobile traffic, the reduction of available
parking spaces in public-owned lots, automobile parking intrusion into residential
neighborhoods adjacent to commercial areas, and overall difficulty in moving through
intersections due to traffic congestion.
As illustrated earlier, daily traffic volumes ebb and flow over time, and with the end of the
recession, volumes are approaching levels attained during the Dot-Com boom. In addition,
local and regional traffic congestion is noticeably worse for drivers, whether they’re commuting
long distances, or making short local trips. Complaints about traffic and parking are widespread
across the Bay Area.
Architecture & Design
A relatively recent community concern engendered by ongoing development activity relates to
the architecture and design of newly constructed buildings. Some community members have
complained that the Architectural Review Standards, contained within the Municipal Code, are
not being applied strictly and evenly and as a result, new buildings do not meet the level of
architectural quality that Palo Alto expects.
This concern about design compatibility is often expressed as a critique of individual projects
that have been approved since the adoption of the 1998-2010 Comprehensive Plan. Some of
these projects are listed in the following table:
City of Palo Alto Page 16
Sample of Significant Projects Approved Since Adoption of 1998-2010 Comprehensive Plan
Projects Zoning Year Approved
800 High Street- multi-family residential
PC 2003
Vantage of Palo Alto ROLM 2003
Echelon- multi-family residential, East Meadow Drive ROLM 2004
Downtown parking garages (High Street & Bryant) PF/PC 2000
Hyatt Ricky’s/Arbor Real- multi-family residential
CS/CN/R-
1/RM-15
2005
TKCJL- community center and residential
PC 2006
Altaire- Fabian Way, multi-family residential, affordable housing PC 2006
801 Alma- affordable housing
RT-50 2009
Sterling Park multi-family residential, E. Bayshore Rd. ROLM 2007
Elks Lodge/Rosewood Gate- multi-family residential and private lodge RM-
15/RM-
30
2007
Palo Alto Bowl Site Redevelopment- hotel and multi-family residential CS 2009
Alma Plaza- retail and multi-family residential
PC 2007
SUMC- hospitals modernization and expansion
Hospital 2011
Edgewood Plaza- retail redevelopment PC 2013
101 Lytton- commercial office
PC 2011
Source: Planning and Community Environment Department
By comparison, there has been relatively little criticism of the post-war strip mall design of El
Camino Real, for example, or other mediocre architecture from earlier periods.
City of Palo Alto Page 17
Most importantly, discussion of some existing standards and their rigid application (height limit,
for example) can contribute to poorer building design when the density and FAR (floor area
ratio) of a project remains unchanged. A discussion of design as an integrated systems
challenge and not simply a collection of individual standards and requirements could generate
an important and needed conversation and improve design.
Land Use & Transportation Studies
In addition to considering and approving individual development applications that are
consistent with the 1998 Comprehensive Plan, the City has undertaken numerous land use and
transportation studies since the adoption of the Comprehensive Plan:
Land Use and Transportation Studies Completed/In-progress since Adoption of 1998-2010
Comprehensive Plan
Projects Completed / In-progress
Downtown Cap Study In-progress
Phase 1 data
collection/analysis
completion: May 2014
Phase 2 policy development
and CEQA completion:
October 2014
Comprehensive Plan Amendment
Transportation Element- Council review
Citywide Transportation Model- Council review
Land Use Element- Council review
California Avenue Concept Area Plan
East Meadow Circle/Fabian Way Concept Area Plan
In-progress
Completion Q2 2015
Q1 2014
Q1 2014
Q1 2014
PTC Review 11/20
Council approved Jan 2012
2014-2022 Housing Element In-progress
Completion: Q1 2015
City of Palo Alto Page 18
Transportation survey
Completed; to be
Transmitted to Council
12/9/13
Residential Permit Parking (RPP) Programs
In-progress,
scheduled for Council
discussion on 12/16/13
Parking studies
In-progress,
status will be provided at
the RPP Council discussion
on 12/16/13
California Avenue Streetscape In-progress,
currently out to bid
High Speed Rail/CalTrain Modernization
In-progress
El Camino Real Grand Boulevard Initiative
In-progress
Sidewalk Width Colleague’s Memo Implementation In progress,
ARB & PTC input Q1 2014
Urban Forest Master Plan In-progress
Completion June 2014
Parks & Recreation Master Plan
In-progress
Arts & Innovation District, 27 University
On-hold,
pending outcome of the
12/2/13 study session
1999-2006 Housing Element 2003
South of Forest Area Coordinated Area Plan I & II 2003- 2005
El Camino Real Design Guidelines
Adopted by ARB in 2002 and incorporated in the Municipal Code in 2005)
2005
El Camino Real Master Plan Study 2007
Zoning Ordinance Update 2007
Baylands Master Plan 2009
Bicycle and Pedestrian Master Plan 2012
City of Palo Alto Page 19
Sustainable Communities Strategy, Plan Bay Area 2013
2007-2014 Housing Element 2013
Rail Corridor Study 2013
Source: Planning and Community Environment Department
The renewed pace of development since the end of the recession, daily traffic and parking
conditions, and the number of concurrent planning studies, have resulted in many people
feeling that there is no coherent vision or narrative connecting individual project review and
the various planning efforts underway. This feeling has led to significant discontent with the
Planned Community (PC) district rezoning process as well some concerns that the
Comprehensive Plan is being ignored or has lost its currency.
Planned Community Development
Rezoning to a PC district follows a set of procedures and standards, which are prescribed in
Chapter 18.38 of the Palo Alto Municipal Code (PAMC). The PC process begins with PTC review
of the concept plans, development program statement and draft development schedule. If the
PTC recommends initiating the PC request, the development plan, site plan, landscape plan and
design plans are submitted to the ARB for design review in the same manner as any commercial
or mixed-use project. The environmental document is prepared and circulated prior to ARB
consideration. The development plan recommended for approval by the ARB is then returned
to the PTC, together with a draft PC ordinance and environmental document, for review and
recommendation to the City Council. The PC ordinance would identify the permitted and
conditionally permitted uses and site improvements, as well as a schedule for completion of the
project. The Council may approve a PC zone change only if it finds that:
1. The site is so situated, and the use or uses proposed for the site are of such
characteristics that the application of general districts or combining districts will
not provide sufficient flexibility to allow the proposed development.
2. Development of the site under the provisions of the PC planned community
district will result in public benefits not otherwise attainable by application of
the regulations of general districts or combining districts. In make the findings
required by this section, the Planning and Transportation Commission and City
Council, as appropriate, shall specifically cite the public benefits expected to
result from use of the planned community district.
City of Palo Alto Page 20
3. The use or uses permitted, and the site development regulations applicable
within the district shall be consistent with the Palo Alto Comprehensive Plan, and
shall be compatible with existing and potential uses on adjoining sites or within
the general vicinity.
The PC process, whereby the City and a developer negotiate site-specific design and
development standards in exchange for “public benefits,” is viewed by many as too opaque and
transactional, allowing neighborhood impacts to be “traded” for benefits that accrue to those
outside the immediate vicinity. The process and some of its outcomes (i.e. the public benefits
resulting from individual projects) have been critiqued as inadequate, and the ad hoc nature of
each separate negotiation has contributed to community concerns about the lack of a coherent
set of values or vision for the future.
The following table describes the Planned Community districts approved by Council since the
adoption of the Comprehensive Plan in 1998.
Council Adopted Planned Community Districts Since 1998
Planned
Community
Address Known As Approval
Date
Public Benefits
PC-4511 502-562 Driscoll
Place
Driscoll Place
Townhomes
07/01/98 TDM program, pedestrian
oriented landscaping on
ECR, BMR units
PC-4611 445 Bryant Street Parking Lot S/L 03/20/2000 Parking garage, landscaping,
art
PC-4612 528 High Street Parking Lot R 03/20/2000 Parking garage, landscaping,
art
PC-4637
PC-2533
3000 El Camino Real Palo Alto Square;
amendment to
previously
approved PC
05/22/2000 None listed on original 1969
ordinance.
PC-4753 2051 El Camino Real 2051 El Camino
Real
06/13/2002 Redevelopment of
underutilized site, two
smaller housing units, one
BMR unit.
PC-4779 800 High Street 800 High Street
condos
02/18/2003 Public parking, open space
plazas, auto access to 801
Alma affordable housing
City of Palo Alto Page 21
site, BMR units
PC-4782 33 Encina Avenue Opportunity
Center
03/17/2003 Services center for
homeless, BMR units.
PC-4831 2701 El Camino Real Sunrise Assisted
Living
06/21/2004 Redevelopment of
underutilized site, senior
assisted living units, BMR
units for 12 persons,
publically accessible open
space, $20K for street trees
at ECR, art, Avenidas
meeting space
PC-4843
PC-2592
690 San Antonio
Avenue
Auto dealership
design features;
amendment to
previously
approved PC
10/04/2004 None listed on original 1971
ordinance.
PC-4846
PC-2554
1730 Embarcadero
Road
Auto dealership
design features;
amendment to
previously
approved PC
10/04/2004 None listed on original 1970
ordinance.
PC-4847
PC-3350
1766 Embarcadero
Road
Auto dealership
design features;
amendment to
previously
approved PC
10/04/2004 None listed on original 1982
ordinance.
PC-4917 3895 Fabian Way Altaire Market
Rate Condos /
Alta Torre Senior
Apts.
10/10/2006 Alta Torre 100% BMR senior
apartment units
PC-4918 901 San
Antonio/3921 Fabian
Way
Taube-Koret
Campus for
Jewish Life
10/10/2006 Shared-use community
facility, BMR senior assisted
living units
PC-4956 3388-3557 Alma
Village Circle
Alma Plaza 06/18/2007 15K sqft grocery store as a
permanent use, park,
community room, 14-BMR
units
PC-4995 449-453 Addison
Avenue
Creation of a flag
lot
03/10/2008 Allows preservation of two
historic residences
PC-5034 488 West Charleston
Road
TreeHouse Apts. 03/30/2009 100% BMR project, 35 units
City of Palo Alto Page 22
PC-5069 2180 El Camino Real JJ&F Market 01/11/2010 8,000 sqft grocery store,
four BMR units, $5K tree
planting on ECR
PC-5116 4025-4075 El Camino
Way
Palo Alto
Commons,
residential
addition
04/21/2011 $100K to Avenidas, rental
senior assisted housing,
pedestrian/bus stop
improvements
PC-5150 2060 Channing
Avenue
Edgewood
Shopping Center
04/09/12 Preservation of historic
grocery store, public park, 3
charging stations, historic
preservation payment
PC-5158 101 Lytton Avenue 101 Lytton
Commercial
Office
06/11/12 4 charging stations, 1 zip car
space, parking study
payments of $310K, BMR
non-profit rental space, 8
surface parking spaces
Discussion
Comprehensive Plan Update
Using the work of the PTC on the Comprehensive Plan Amendment as a foundation, Staff
suggests that now may be the appropriate time to initiate a renewed community engagement
effort around the Comprehensive Plan’s vision and priorities. A visioning exercise would
examine goals and priorities related to community character, land development, traffic and
parking, and the preservation and conservation of valuable resources, and could be conducted
concurrently with a comprehensive cumulative impacts analysis in the form of a program-level
Environmental Impact Report (EIR). Specific questions that could be framed for the public’s
consideration include:
Should the City increase, decrease or maintain the non-residential development caps
currently in-place for Downtown and the 1986 land use study areas?
Are there specific areas or development sites that should be the focus of change, so as
to protect and preserve other areas?
Are there specific transportation investments that are needed in the near term or long
term to improve mobility, preserve the City’s neighborhoods, and perpetuate a robust
economy?
City of Palo Alto Page 23
At the time of the work plan initiation in 2006, the City Council did not include a visioning
exercise as part of the Comprehensive Plan Amendment. However, given the length of time it
has taken to amend the Comprehensive Plan and the significant changes that have occurred
since the adoption of the existing Comprehensive plan in 1998, Council may find it appropriate
to conduct a visioning exercise at this time. The outcome of the visioning exercise would be to
inform the Comprehensive Plan Amendment process and validate or alter the work that has
been achieved thus far.
The visioning exercise will require additional time and resources, but can happen concurrently
with preparation of a program-level EIR, which can provide the kind of overarching cumulative
impacts analysis that members of the community are requesting and also propose a series of
mitigating actions and programs for incorporation into the plan.
The graphic below illustrates how the community visioning process and the program-EIR can
combine to inform the final Comprehensive Plan amendment that is proposed for adoption by
the City Council. If Council is amenable to this overall approach, staff would return to Council
with a work plan and schedule early in 2014.
The Council will also have to decide which implementing ordinances and practices can be
tackled concurrently with the Comprehensive Plan Amendment, and which should be reserved
for future action. For example, the Council could seek to reform the Planned Community
zoning process ahead of the Comprehensive Plan Update or as part of that process. The Council
City of Palo Alto Page 24
could also initiate the reform themselves, or request the PTC formulate a recommendation
first.
One important issue to note is that the Housing Element of the Comprehensive Plan will have
to be updated on a separate schedule due to requirements in State law. Specifically, an update
for the planning period 2014-2022 must be completed and adopted in January 2015 or the City
will face significant penalties. The most notable penalty would be a requirement to update the
element again in four years, rather than in eight years as provided for in SB 375 and companion
legislation.
Planned Community Zoning
Planning staff believes that the Planned Community zoning tool can be re-examined and refined
to better achieve its original intent. As stated in the Specific Purposes section of PC regulations,
“The planned community district is particularly intended for unified, comprehensively planned
developments which are of substantial public benefit, and which conform with an enhance the
policies and programs of the Palo Alto Comprehensive Plan.”
There may be intersections between this effort and the Comprehensive Plan update, and
possible refinements can range from wholesale reform to adjustments that:
Specifically define the types of projects that may apply for a PC district;
Create minimum lot sizes that would be eligible for PC districts;
Establish a buffer (a minimum distance) between a proposed PC district and existing
low-density residential districts;
Create a menu of public benefits that would be allowed under a PC, and/or
Establish a mechanism for mitigation and condition monitoring.
Pipeline Projects
The Council may decide whether to entertain rezoning proposals -- including proposals for the
use of the PC district – prior to reforming the PC zoning process and/or completing the
Comprehensive Plan update. Logically, most such proposals would be deferred, however there
may be special circumstances in which the Council may wish to consider a rezoning proposal
and the Council could choose to articulate related criteria or provide other guidance to
property owners.
This community has long valued property rights of landowners to develop in conformance with
existing zoning. Both State law (State Permit Streamlining Act) and local law prescribe time
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limits time limits for processing entitlements for zoning compliant projects. Also, the ability of a
local jurisdiction to efficiently and predictably process building permits and other entitlements
that are consistent with its zoning regulations typically helps to define a positive business
climate.
Palo Alto takes pride in a business climate that supports innovation and entrepreneurship; this
climate would be challenging to maintain if proposals that are consistent with current zoning
regulations are deferred. There are also legal hurdles associated with deferring certain zoning
compliant projects. On the other hand, Council has much more flexibility in deferring
consideration of discretionary zoning decisions like PC’s or other up-zoning requests.
The need to process development proposals that are consistent with current zoning regulations
at the same time that the City is working on community-wide planning issues, suggests the
need for consistency and transparency. Applicants and members of the public should clearly
understand the existing regulations and standards by which a project is being evaluated, how
direct, indirect, and cumulative impacts of the project are assessed, and how the project relates
to the Comprehensive Plan update and other planning and transportation initiatives that are
underway.
While Staff is suggesting a visioning initiative with a strong emphasis on the Comprehensive
Plan it is important to recognize that existing zoning on all properties in the city is the most
concrete form of a city’s land use plan and placing restrictions on the use of that zoning (or
down zoning) is something that requires extensive engagement with property owners and
others in the community. This is a fact that is frequently misunderstood or ignored by some
members of the public when the Council considers applications under existing zoning.
Traffic and Parking
Much of the community’s concerns regarding PC zoning and the cumulative impacts of
development in general relates to parking and traffic issues. The Council will be getting an
update on aspects of these issues in the coming weeks as staff brings forward a study session
regarding Transportation Demand Management (TDM) on December 9th and a framework for
Residential Permit Parking on December 16th. In this context, staff will also summarize
initiatives to expand parking supplies.
Also, on December 12th, staff will be providing the PTC with a summary of the traffic analysis
methodology that is used to assess project-specific and cumulative impacts, including the
adjustments that are being made to reflect an updated travel demand model. Following
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Commission questions and comments, staff will forward a revised summary/explanation to the
Council for review.
Timeline
The City Council has initiated a community outreach plan for a discussion of the City’s Core
Values, and has requested that the public outreach component be completed in time for
Council’s yearly retreat in Q1 2014 where Council sets its priorities for the upcoming year. The
PTC is scheduled to provide recommendations regarding elements of the Comprehensive Plan
amendment in the same timeframe.
The Council may wish to use both events to preface a community engagement/visioning
process about community character, land development, traffic and parking, and other topics,
and to direct this community engagement effort to be completed concurrently with
preparation of the program-level EIR for the Comprehensive Plan update. The Council may also
wish to revise the City’s PC zoning process in 2014, and the City is required to update the
Housing Element of its Comprehensive Plan by the end of January 2015.
As a prelude to any revision process on PC’s, the City Manager recommends that all current PC
projects under consideration be stopped and put on hold for a sufficient period of time to allow
this comprehensive review of our plans and policies to unfold.
At the closure of the study session, staff will attempt to summarize direction from the Council.
One or more related action items will be brought back to the Council for formal direction early
in the 2014.
Resource Impact
Resources to conduct a City-wide visioning process will vary depening upon the scope of the
exercise. Resources to review and reform the PC zoning process will depend on the Council’s
desired approach and schedule. The City Manager intends to restructure existing staffing to
ensure an extensive community engagement initiative. This may include additional resource
investments. The need for more planning capacity and staff will be a subject of the upcoming
budget review and City Manager recommendations on the Budget. Future agenda items will
outline alternative approaches and resources in detail, following Council’s study session.
Policy Implications
A community visioning exercise and cumulative impacts analysis (in the form of a program-level
EIR) can result in an updated Comprehensive Plan with broad community support. At the same
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time, reforms to the PC zoning process can improve the public’s perception of City government
by focusing on ways to improve transparency and predictability, and updating the City’s
Housing Element can ensure continued compliance with State housing laws. All three efforts,
as well as ongoing initiatives related to traffic and parking, can honor the policies and programs
of the existing Comprehensive Plan, including Program G-2: Periodically assess the need for
citizen input on various policy issues and appoint advisory bodies and ad hoc committees as
needed, and Policy G-11: Encourage the development of new planning processes that
emphasizes a collaborative exchange of ideas. Retain City Council authority over decision-
making in these processes.
Environmental Review
Study sessions by definition are not “projects” under CEQA, because no actions will be taken.
When staff returns for Council direction regarding the issues discussed, the agenda report will
provide information about the CEQA process for zoning and Comprehensive Plan changes that
are considered in the future.
Attachments:
Attachment A: Comprehensive Plan Update Overview (DOCX)
ATTACHMENT A
Comprehensive Plan Update Overview
The ongoing Comprehensive Plan update has suggested rearranging chapters and elements
and substantially changing the format of the existing plan, without changing its core
values. The update also attempts to address the challenges of today, including affordable
housing, sustainability and climate adaptation, traffic and parking, and maintaining a place in
the community for non-profits and new businesses that can’t pay the same rents as established
commercial enterprises. New policies and programs are intended to clarify existing policies and
programs and to accommodate new State requirements. Aspects of the Comprehensive Plan
that are proposed to remain unchanged include:
1. The limit of 3,257,900 square feet of new non-residential development in the 1986
land use study areas;
2. The limit of 350,000 square feet of new non-residential development in the
Downtown area, or 10% above the amount of development existing or approve as of
May 1986, and
3. The existing road network within the city.
As currently drafted, approximately 85% to 90% of the existing policies and programs would be
carried over either unchanged or with edits to improve clarity, intent, and to reduce repetition:
Continuation of 1998-2010 Comprehensive Plan Goals, Policies, and Programs
Elements % of
Programs
Completed
and Not
Continued
% Edited and
Carried Over
% Carried
Over w/o
Edits
Total %
Carried
Over
Land Use Element 13 48 39 87
Transportation Element 11 70 19 89
Housing Element 13 69 18 87
Community Services and Facilities Element
14 46 40 86
Natural Environment Element
15 52 33 85
Source: Planning and Community Environment Department
In addition to the carry-over of existing polices and program from the 1998-2010
Comprehensive Plan, staff and the PTC have suggested adding many new policies and programs
that are meant to address existing priorities of the City, such as:
Land Use Element
L1.1 POLICY Require that land use policies be consistent with Palo Alto’s Climate Protection
Plan, striving to achieve and exceed target reductions in greenhouse gas
emission levels set forth by City Council goals from City operations and
community emissions. (New Policy)
L2.9 POLICY Require infrastructure improvements to serve all areas of the City fairly, address
the most urgent needs, and accommodate future growth. (New Policy)
L3.11.1 PROGRAM Introduce measures to counteract the loss of retail activities in Palo
Alto’s Neighborhood Centers. (New Program)
L3.18 POLICY Encourage retention and enhancement of research and development (R&D),
office, light industrial, and commercial development consistent with the East
Meadow Circle Concept Plan ensure that new and existing development is
compatible and includes appropriate transitions to nearby single- and multi-
family development. (New Policy)
Transportation Element
T1.1 POLICY Reduce greenhouse gas emissions associated with transportation by reducing
vehicle miles traveled and per-mile emissions through use of vehicle
technologies to meet the City’s goals for greenhouse gas reductions by 2020.
(New Policy)
T4.1.1 PROGRAM Develop a Parking Management Program for both the
University/Downtown and California Avenue business districts that supports
alternative transportation modes. (New Program)
T4.3.1 PROGRAM Study parking pricing and congestion pricing options for on-off-street
parking in the Downtown/University Avenue and California Avenue business
districts that is responsive to the market and results in approximately 85%
parking occupancy. As part of creating this system, review the existing
Downtown parking system to ensure it is still consistent with the overall
approach to parking in the Downtown, and includes mechanisms that allow
merchants to defray parking fees for their customers. (New Program)
T4.5.1 PROGRAM Review on-street parking availability in residential neighborhoods
adjacent to business districts to determine how it is used during business and
non-business hours. Consider allowing designated disabled on-street parking
upon resident request when conducting this review. (New Program)
T4.5.2 PROGRAM Develop a program to implement new residential permit parking
districts to preserve neighborhood quality of life. (New Program)
Community Services and Facilities Element
C1.3 POLICY The City’s community services should be a catalyst in creating a culture of health,
wellbeing and active living in our community. It shall contribute to the
intellectual physical and social health of the community by providing
opportunities for learning, expression and social interaction for all ages at our
libraries, community facilities, parks and cultural centers. (New Policy)
C1.4 POLICY Incorporate the “Developmental Assets” approach into the City’s planning,
development, implementation and evaluation of programs and services for
children and youth. (New Policy)
C1.6 POLICY Develop strategies to help the community identify and combat depression,
isolation, stress and other mental health issues. (New Policy)
Natural and Urban Environment and Safety Element
N2.1 POLICY Achieve and exceed City Council targeted goals for reductions in greenhouse gas
emission levels from City operations and community emissions. (New Policy)
N2.3 POLICY Pursue the goal of achieving zero net energy homes for all new detached or
single-family residences by 2025. (New Policy)
N3.5 POLICY Encourage renewable energy use by continuing to implement a dynamic 100%
carbon neutral Renewable Portfolio Standard for electric service. (New Policy)
N8.10 POLICY Regularly review the adequacy of law enforcement services and emergency
services in the city. Plan and develop law enforcement infrastructure and
technology according to overall need and the growth within the City. (New
Policy)
Housing Element
H3.1.10 PROGRAM Adopt a revised density bonus ordinance that allows up to a maximum
zoning increase of 35 percent in density and grants up to three concessions or
incentives. The density bonus ordinance will meet State standards for the
provision of housing units for very low- and lower-income renters, seniors and
moderate-income condominium buyers in compliance with
Government Code Section 65915, et seq. (New Program)
H 2.2.6 PROGRAM Amend the Zoning Code to create zoning incentives that encourage
development on and consolidation of smaller lots, such as development review
streamlining, reduction in required parking for smaller units, setback
modifications, or graduated density when consolidated lots are
over one-half acre. (New Program)
The intent of City staff and the PTC is to honor and maintain the themes and values described in
the existing Comprehensive Plan, repeated here:
Building Community and Neighborhoods;
Maintaining and Enhancing Community Character;
Reducing Reliance on the Automobile;
Meeting Housing Supply Challenges;
Protecting and Repairing Natural Features;
Meeting Residential and Commercial Needs, and
Providing Responsive Governance and Regional Leadership
and adding additional themes:
Adapting to climate change
Protecting neighborhood-serving retail
Infrastructure management
Health and well-being of our residents