HomeMy WebLinkAboutStaff Report 14726
City of Palo Alto (ID # 14726)
City Council Staff Report
Meeting Date: 12/19/2022 Report Type: Action Items
City of Palo Alto Page 1
Title: 1237 San Antonio Road [22PLN-0013], Project Known as Palo Alto
Homekey: Recommendation for a Comprehensive Plan Amendment for the
Northwest Portion of the Site Changing the Land Use Map Designation from
"Public Conservation Land" (CL) to "Major Institution Special Facilities"
(MISP) to Create Alignment Between the Existing Use and Its Designation
From: City Manager
Lead Department: City Manager
Recommendation:
Staff recommends that the City Council adopt the proposed Resolution amending the
Comprehensive Plan land use designation at 1237 San Antonio Road from Public Conservation
Land (CL) to Major Institution/Special Facilities (MISP) to create an alignment between the
existing use and its designation.
Executive Summary:
This Comprehensive Plan Amendment aligns the map to the site's existing (and proposed
future) use. The applicant, LifeMoves, on behalf of the owner and co-applicant, the City of Palo
Alto, is moving the City of Palo Alto (City) GreenWaste operations within the current site of
Area C of 1237 San Antonio Road. The new operations area will be to the rear portion of the
same site which will allow for the addition of Palo Alto Homekey to Area C. Palo Alto Homekey
will be a new facility to provide support services and temporary housing for those experiencing
homelessness. A portion of the rear area at 1237 San Antonio Road, approximately 11,800
square feet, has the land use designation of Public Conservation Land (CL). This land has not
been conserved and has been used for Public Works project staging and other uses (such as
truck parking). The Palo Alto Homekey Project is statutorily exempt from the California
Environmental Quality Act (CEQA).
The Architectural Review Board (ARB) reviewed and provided feedback on the project on July
21, 2022. On September 14, 2022, the Planning and Transportation Commission (PTC) reviewed
and recommended that City Council adopt the attached resolution amending the
Comprehensive Plan land use designation. The designation for the northwest portion of the site
conflicts with its longstanding use as building-material debris sorting, construction staging, and
general truck parking. The requested change to the designation would bring this segment of the
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site into alignment with the adjoining portions and align with the existing and proposed future
use.
Background:
City Council discussed and approved Palo Alto Homekey and provided guidance on August 9,
2021, August 30, 2021, September 27, 2021, November 1, 2021, June 21, 2022, and August 15,
2022 related to this project.
On August 9, 2021, the City Council voted 6-1 to support advancing an application for the
Project Homekey Program for an emergency shelter in a portion of the former LATP site.1 In a
September 27, 2021 report to the City Council, staff noted "The relocation of the Green Waste
facilities from their current location to the rear area, as proposed, may require a
Comprehensive Plan Amendment."
Support continued throughout the application and initial design process, most recently with a
vote on August 15, 2022, to authorize the City Manager to execute a State Standard Agreement
in the event of a Homekey grant award, to extend the declaration of emergency shelter crisis,
and to receive an update on the project status. Since that time, the State informed the City of
the official $26.6 million grant award and the City and its partner LifeMoves have executed the
Standard Agreement with the State. Staff also executed a Letter of Intent with the County of
Santa Clara’s Office of Supportive Housing, LifeMoves, and the Santa Clara County Housing
Authority which outline the agreements that staff is crafting with each entity related to project
management, operations, and program and services support. Additionally, staff is working with
LifeMoves to address escalating project costs in this inflationary environment.
Projects funded under AB 140 (Homekey) are automatically deemed consistent with all local
planning and zoning requirements and no discretionary approvals can be required. This is
outlined in Health and Safety Code section 50675.1.3. Since the City is the landowner and wants
to ensure a quality project with public participation, the City Council asked that, though not
required, the ARB review the project. The ARB’s discussion on July 21, 2022 was a courtesy
review and the hearing provided the public an additional forum to offer comments on the
design. A video of the ARB meeting is viewable online2.
Project Description
The proposed Comprehensive Plan amendment is related to movement of the GreenWaste
operation and related infrastructure within the Area C site. This ensures operations continuity
while accommodating the development of a publicly funded interim supportive housing facility
(Palo Alto Homekey) for those experiencing homelessness. The project involves moving
GreenWaste from the front portion of the site along San Antonio Road to the backmost portion
1 A map showing these areas is shown in the August 15, 2016 City Council Staff Report,
https://www.cityofpaloalto.org/files/assets/public/agendas-minutes-reports/reports/city-manager-reports-
cmrs/year-archive/2016/081516-7082-approval-of-license-agreement-for-gw-to-use-former-latps.pdf
2 https://midpenmedia.org/architectural-review-board-7212022/
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of the site. The proposed work includes creating driveway access, performing grading, providing
electrical service, installing a new transformer, and installing electric vehicle (EV) charging
stations. While much of the site has been in use by GreenWaste for sorting of construction
debris, a portion of this Area C has been more typically used as a construction/staging area.
Figure 1 shows the Public Conservation Land (CL) in the Comprehensive Plan Land Use
Designations map. The CL portion is a trapezoid roughly 0.26 acre (11,454 square feet). In its
current state, the CL portion is gravel-covered and used contiguously with the rest of the
current GreenWaste sorting area. As the CL-designated area has been used, for all intents and
purposes, as MISP for six years by GreenWaste, the proposed Comprehensive Plan Amendment
would update the designation to align with its usage.
Planning & Transportation Commission Review
On September 14, 2022, the PTC reviewed and recommended that City Council adopt the
attached resolution amending the Comprehensive Plan land use designation. The PTC was
broadly in support of the Homekey Project and any actions that would facilitate completion of
that project.
During the meeting there was one public speaker for this item, who suggested that the change
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in land use designation should be temporary.
Discussion:
With adoption of the proposed resolution, all existing uses would align with land use
designations at this site.
Neighborhood Setting and Character
The location proposed for GreenWaste operations and Palo Alto Homekey is an over two-acre
part of a larger parcel located adjacent to the Baylands. Palo Alto Homekey is proposed for the
front half of the site at 1237 North San Antonio, with GreenWaste reconfiguring its sorting
layout and relocating to the back half of the site. There is one remaining tank structure in Area
B and the exact height of this structure is unknown, but it is estimated to be approximately 20
feet tall based on Google Maps images.
To the south are tall one-story office buildings currently occupied by Google. The existing grade
of these sites are low, approximately 2.5 to 4 feet lower than the adjacent San Antonio Road.
Across the street from the project site, in the City of Mountain View, are additional tall one-
story office buildings that are elevated a couple of feet above the grade of San Antonio Road
and separated from San Antonio Road by landscaped berms.
Existing Comprehensive Plan Designation3
The Comprehensive Plan land use designations for the project site are:
x Major Institution/Special Facilities (MISP) are characterized as institutional, academic,
governmental and community service uses and lands that are either publicly owned or
operated as non-profit organizations.
x Public Conservation Lands (CL) are characterized as open lands primarily for
preservation and enhancement of the natural state of the land and its plants and
animals.
GreenWaste has been leasing from the City, and operating at this site, a construction debris
sorting area, consistent with the MISP designation since moving from its former facility at 2000
Geng Road at the end of 2016. The operations are primarily located at the front of the site,
away from the CL area. The CL area has been used as a staging area historically, between 1984
and 1991 by the Palo Alto Utilities Department, and more recently, in 2020, by the Granite
Construction Company for storing material and equipment. The CL area is in no visible way
distinct or different from the other parts of the Area C site. The portion of the site currently
designated CL is not open, preserved, nor in a natural state as it appears long compacted and
gravel covered. The project includes a change in land use designation for this subsection of the
site from CL to MISP in alignment with the rest of the site and its current and proposed future
usage.
3 The Palo Alto Comprehensive Plan is available online: https://www.cityofpaloalto.org/Departments/Planning-
Development-Services/Long-Range-Planning/2030-Comprehensive-Plan
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Consistency with Comprehensive Plan Goals and Policies
Land Use Map Designation Amendment
Staff analysis finds, and the Planning and Transportation Commission concurs, that the
proposed Land Use Map amendment is consistent with the following goals and policies of the
Comprehensive Plan:
1. Land Use and Community Design Element: Policies L-1.8, L-1.9, L-2.3, L-7.16
2. Safety Element: Policy S-3.9
3. Community Services and Facilities Element: Goal C-5, Policies C-1.3, C-1.22, C-5.1,
Program C-1.22.2
4. Governance Element: Goal G-3
5. Housing Element: Goal H-3, Policy H-3.5, Programs H-3.36, H-3.5.1
Timeline:
This Comprehensive Plan amendment is related to the Palo Alto Homekey project. The
Homekey award requirements mandate tight timelines, including spending down of monies in
eight months from the date of award and completion/occupancy within 12 months.
Resource Impact:
There are no resource impacts associated with the proposed Comprehensive Plan Land Use
designation change.
Policy Implications:
The proposed resolution supports the City’s efforts to implement goals and policies of the
Comprehensive Plan. Additionally, adoption of the proposed resolution supports Palo Alto
Homekey, a critical project forwarding Council’s priority, “Housing for Social and Economic
Balance.” The proposed resolution also aligns with the Comprehensive Plan policies as stated in
the previous section.
Stakeholder Engagement:
The Palo Alto Municipal Code requires notice of this public hearing be published in a local paper
and mailed to owners and occupants of property within 600 feet of the subject property at least
ten days in advance. Notice of a public hearing for this project was published in the Daily Post
on December 9, 2022, which is 12 days in advance of the meeting. Postcard mailing occurred on
December 7, 2022, which is 14 days in advance of the meeting.
Public Comments
As of the writing of this report, no project-related, public comments were received.
Environmental Review:
Numerous state laws, including but not limited to AB 140 (2021) and AB 2553 (2020) have
exempted emergency shelter projects, and specifically projects funded by Homekey, from the
requirements of California Environmental Quality Act (CEQA). Specifically, the proposed
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resolution changing the land use designation of the site is exempt under Government Code
section 8698.4, subdivision (a)(4) (AB 2553) as an action to facilitate the lease of City owned
land for an interim housing shelter.
Attachments:
x Attachment19.a: 0160084_20220907 - 14694 Attachment A - Resolution Amending
Comprehensive Plan Land Use Map by Changing the Land Use Designation for 1237 San
Antonio Rd from CL to MISP
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0160084_20220907_AY16
Resolution No. ____
Resolution of the Council of the City of Palo Alto Amending the Comprehensive
Plan Land Use Map by Changing the Land Use Designation for 1237 San Antonio
Road from "Public Conservation Land" (CL) to “Major Institution Special
Facilities” (MISP)
R E C I T A L S
A. The City and LifeMoves Inc. have received funding from the California Department of
Housing and Community Development Homekey Program to develop an interim shelter
for individuals experiencing homelessness at 1237 San Antonio Road.
B. In order to facilitate the development of this project, the City’s solid waste hauler,
Greenwaste, is relocating to another portion of the site, which has historically been used
for storage and staging.
C. Although this area has been used for storage purposes, it is currently has a
Comprehensive Plan Land Use Designation Public Conservation Land (CL).
D. In order to better align the Comprehensive Plan Land Use Designation with the past,
present, and future uses of the site, the City desires to amend the Land Use Designation
to “Major Institution Special Facilities” (MISP).
E. The Planning and Transportation Commission, after a duly noticed public hearing on
September 14, 2022, recommended that the City Council amend the Land Use Map of the
City of Palo Alto Comprehensive Plan as set forth below.
F. The City Council considered said recommendation after a duly noticed public hearing held
on ___________, and now desires to amend the Land Use Map as set forth below.
NOW, THEREFORE, the Council of the City of Palo Alto RESOLVES as follows:
SECTION 1. The City Council finds that the public interest, health, safety and welfare of Palo
Alto and the surrounding region would be furthered by an amendment of the Land Use Map of
the Palo Alto Comprehensive Plan as set forth in Section 2.
SECTION 2. The proposed Land Use Map amendment is consistent with the following goals
and policies of the Comprehensive Plan:
Land Use and Community Design Element
Goal/Policy Program Consistency
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0160084_20220907_AY16
Policy L-1.8 Maintain an active
engagement with Santa Clara
County, San Mateo County,
neighboring cities, other public
agencies including school
districts and Stanford University
regarding land use and
transportation issues
The proposed amendment enables the development of Palo Alto
Homekey, a project involving close engagement and coordination
with the City of Mountain View and Santa Clara County.
Policy L-1.9 Participate in
regional strategies to address
the interaction of jobs, housing
balance and transportation
issues.
The proposed amendment enables the development of Palo Alto
Homekey, which is an important component of both a regional (i.e.,
Santa Clara County) and statewide effort to quickly expand housing
for persons experiencing or at risk of homelessness.
Policy L-2.3 As a key component
of a diverse, inclusive
community, allow and
encourage a mix of housing
types and sizes integrated into
neighborhoods and designed for
greater affordability,
particularly smaller housing
types, such as studios, co-
housing, cottages, clustered
housing, accessory dwelling
units and senior housing.
The proposed amendment enables the development of Palo Alto
Homekey which would increase housing diversity by introducing
transitional housing to Palo Alto.
Policy L-7.16 Continue to
consult with tribes as required
by California Government Code
Section 65352.3. In doing so,
use appropriate procedures to
accommodate tribal concerns
when a tribe has a religious
prohibition against revealing
precise information about the
location or previous practice at
a particular sacred site.
In relation to the proposed amendment, staff is following
(concurrently) all appropriate noticing procedures for tribal
consultation.
Safety Element
Goal/Policy/Program Consistency
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Policy S-3.9 Reduce solid waste
generation through requiring
salvage and reuse of building
materials, including
architecturally and historically
significant materials.
The proposed amendment will allow GreenWaste to maintain its
existing building materials sorting operations while allowing the
development of new transitional housing (i.e., Palo Alto Homekey).
Community Services and Facilities Element
Goal/Policy/Program Consistency
Policy C-1.3 Streamline and
improve delivery and provision
of services and to meet the
changing needs of our
population.
The proposed amendment enables the development of Palo Alto
Homekey which would provide a focused, centralized array of
services to our unhoused population.
Policy C-1.22 Support and
promote County, City, State and
nonprofit services addressing
the needs of the low-income
and unhoused community
especially in the areas of
permanent supportive housing
and temporary housing which
addresses food, clothing, health
care, mental health and
transportation needs.
The proposed amendment enables the development of Palo Alto
Homekey transitional housing, which would provide an array of
services and address a variety of needs including food, health care,
mental health care, and jobs.
Program C1.22.2 Work with
Santa Clara and San Mateo
Counties, the State of California,
the federal government,
nonprofit agencies, business
and other organizations to
define roles and responsibilities
in the comprehensive provision
of permanent supportive
housing and temporary shelter,
food, clothing and
transportation for those in
need.
The proposed amendment enables the development of Palo Alto
Homekey a project involving working with a variety of stakeholders,
including the State, Santa Clara County, the City of Mountain View,
LifeMoves (a local nonprofit), and others. This work includes defining
and distributing roles and responsibilities relating to meeting the
needs of the unhoused.
Goal C-5 Sustain the health,
well-being, recreation and
safety of residents and visitors
and improve the quality,
The proposed amendment enables the development of Palo Alto
Homekey which would introduce transitional housing and services to
improve the lives and outcomes of the unhoused.
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0160084_20220907_AY16
quantity and affordability of
social services for all community
members, including children,
youth, teens, seniors, the
unhoused and people with
disabilities.
Policy C-5.1 Demonstrate an
ongoing commitment to the
health and well-being of the
public.
The proposed amendment enables the development of Palo Alto
Homekey a project demonstrating the City’s ongoing financial
commitment to increasing the health and well-being of the unhoused
in our community.
Governance Element
Goal/Policy/Program Consistency
Goal G-3 Collaboration with
regional partners and support
on regional issues.
The proposed amendment enables the development of Palo Alto
Homekey, which is an important component of both a regional (i.e.,
Santa Clara County) and statewide effort to quickly expand housing
for persons experiencing or at risk of homelessness.
Housing Element
Goal/Policy/Program Consistency
Goal H-3 Meet underserved
housing needs and provide
community resources to
support our neighborhoods.
The proposed amendment enables the development of Palo Alto
Homekey which would help meet a currently underserved need for
transitional housing.
Program H-3.36 Continue to
participate with and support
agencies addressing
homelessness.
The proposed amendment enables the development of Palo Alto
Homekey a project involving participating with and supporting a
variety of agencies addressing homelessness.
Policy H-3.5 Support the
provision of emergency shelter,
transitional housing, and
ancillary services to address
homelessness.
The proposed amendment enables the development of Palo Alto
Homekey, an emergency shelter providing transitional housing and
ancillary services to address homelessness.
Program H-3.5.1 Continue to
participate in the Santa Clara
County Homeless Collaborative
as well as work with adjacent
jurisdictions to develop
additional shelter opportunities.
The proposed amendment enables the development of Palo Alto
Homekey an emergency shelter and the first transitional housing in
the city.
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0160084_20220907_AY16
SECTION 3. The City Council hereby amends the Land Use Map of the Palo Alto Comprehensive
Plan by changing the designation of the area depicted in "Exhibit A" from Conservation Lands and
Major Institution/Special Facilities. "Exhibit A" is attached to this resolution and incorporated into
it by this reference.
SECTION 4. The Council finds that the adoption of this resolution is exempt from review under
the California Environmental Quality Act pursuant to Government Code section 8698.4,
subdivision (a)(4) because the change in land use designation is an action to facilitate the lease
of City owned land for a homeless shelter.
INTRODUCED AND PASSED:
AYES:
NOES:
ABSENT:
ABSTENTIONS:
ATTEST:
__________________________ _____________________________
City Clerk Mayor
APPROVED AS TO FORM: APPROVED:
__________________________ _____________________________
Assistant City Attorney City Manager
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