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HONORABLf CITY COUNCIL
P~lc Alto, (alifo~nia
Palo Alto narbor Improvements Site and Design ReYie~ Application, Park
!mpro .... ement Ordi:r,ancE and ~esolution for Application to San franc;sco
~'n_(oTlseryat i ol::Lniindnj)eve 1 coment Corrrni 5S iQIL ______ _
Members. of the Council:
KepJ>..rJ in Brief
ll1is report recommends that Council appro ... e the Mitigated NegatilJe Dec.lardtlDn
and approve the Palo Alto Harbor Improvement project,. subject to the findings
and conditions listed below. The project consi~ts of marsh restorati0n y
sailjng station and associated parking lot/public aCC€5S construction and
restorat i on of the forner Harbor Master' 5 Cottage. Ttl; s report al so
recornmends approval of He attached Park fmprDvement Ordinanc€ and a
Resolution authorizing the City Manager to apply for the necessary
construction permit from the San Francisco eajl (.O(lSErvat;;on and D€'ielopme.nt
CommisSion (BCOC).
A full and complet€! background statement is found in the Plan.ning COlmlis.sion
staff report of rebruary 8, 1991 (Attachm€'nt III,. In brief, the project
imp1ements three elements of the Baylands Master Plan which are currently
funded in U1e 5-year Capital Improvement Program for t~e Palo Alto harbor_
Cons.lnction of the-se elemeflts ... ill tal.::e place during the s.lJmr,l~'i' and fall of
1991.
following is a SUrtlI"\lary of thp. baCKground and description for" each eleml:'ot.
]. ~V_~nSJnil.J)on/Parking_lot/F-ubl iU~_4;:n~: !n January 1988, (ounc i i
appro·.'ed the sail ing station in the Capital Improvement Prc;j·am as a
result of tf'!~ positive feedback reee'llied in several public meetings from
small boat e~thu~ia~ts, board sailors, canoeists and rowers. Prior to
s.tarthg detai1r.:'d design. the Counc.il reaffh'med their support for the
sailing station based on updated hydrologlc il'lfrJrmation whic.h showed the:
fa~jlity ~ould be useable for small hand-carrtcd craft, espeCially sd,l
boards.
Ihe sa5ling station is designed to serve only small handncarried sailing
~essels with s~al1ow drifts such as lazers, sunfis~, sail boards, cafioe~
and rOlllling boats. The facility will consis.t of an elevated 10·foot-llfide
fixed pier, extending approximately 200 feet out into the deepest part
of the channel. The elevated pjer ~ill connect to a JOO foot-lang
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floatlng deck by ~ay of a 6-foot-wide ga~gway. The existing ~oat ramp
win be remo'red is par-t of an envlron:nental measure to provide a
wildlih torridor along the sh<)reline bebeen the mars.h restoration site
on Harbor Point and Mundy Marsh. The corridor wouTd extend under the
elevated pier of the sailing station.
The existlng unpaved pa.t"k.~ng area will be upgraded an<j r~co(lfigur€d into
a 37-space parKing lot and ilWill incl:.Jde a publ~c telephone, portablt!
to' lets. changing area, pl:nic tables, ~~ste receptacles, bicycle r~ck5,
drinking fountain and boat hos~-off area. A nelrt bicycle/pedestrian path
wi 11 be constructed bet~een the parkirlg 10t and t lJCY hans Interpr'et i, ie
Center parkin9 lot~ terminating at t~e existing shell ~ath adjacent to
the iagoon cu1 .... ert. Obser'llation stations will be located at \larious
points il~ng the new path.
2. Maq--'l...R.~storitiQI}: The second project €'Iement includes the res.toration
of 11.2 acres of marsh at Harbor Point in t~o phases. The first p~a5e,
consisting of feur acres, is currently funded in the Capital Imprcve~ent
Program. The San Francisco Bay (o;1servation and De\lelopment Commi$sloll
(BCOC) ha'S mandated that the City restore four acres to marshlands. by
J::.nuary I, 1992, as a condition of tfle City's prevlolJs hHbor dredging
permH. The work is sc.heduled to begin in fall 1991.
The secund phase, cons1stlng of 7.2 atres, is ~ot currently funded,
however design apPl"oval is requested as part of this site and design
applicit'on. Staff is looking into financing the r=mainlng rest0ration
through i marsh mltigation bank. It maJ be possible to have the
Cal ifol"'nia Coastal Conser .... ancY fund the 7.2-acre mars~1 restor-ation using
~itigiJtior. fl.,mds recdved frortl other developments in the Bay Area.
5taff will retur~ t<i Coul'lcil with i recommendation on this !'latter at a
Tater date.
3. Harbor Ma5ter's ___ J.9 __ tJ,~9J~: The third element incl!Jdes t~e r~~toration of
the Harbor Master's Cottage. Th~ Cottage is currentTy occupied as an
office on a part--time b~s}s by City park rangers. The Cottage, whic;:, j~
a point of histcrical jnterest and a ~ersion of Spanish colo,ial reviwa1
style. ~as co~structed jl'1 ]937 as part of a ~arks Program Administration
project for de\lelnping the former yacht harbor.
Because of exten3j~e dd~age resulting from age, term~te infestation, and
earthquake damage. the project fncl~des the demolition ~f tIle lean-to
ddditions and mijor repatr of the roof, foundation, walls, floor. and
electdcal and plumbing fixtures:. The $HlO,OOO estimate f01" the
pniposed impro·~ements is in excess of the 550,000 budget. Steff was
~!Jccessfu1 in preli~lnary approval for i S30,OOO grant from the S~.,ta
Clara County Historical Heritage CommiSSion to assist in funding the
Cottage ~enovation. Formal approval by the Sant~ C;ara County Board of
Supervisors __ as C'btained on March 5 1991. Staff plans tCr reapply nE~t
fiscal year for an additional S20,OOO to co~er the remalning short fall,
~nd expects the application w'll be favorably r-ec.eived.
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e.l!J:1.0.JD.9m_Cornmiss lon Act lor'! al"! __ dm_Staff P-P'SPQIJdg
At the Planning Corrmission meeting ;:,f Febru.arj' 13. 1';91, the Pla:'ming
Commission voted unanim{lusi.1 (6-0, 1 absent) to recor.1!T1end adoption of the
Mitlgated Negat1~e Declaration and approval of the project, subject to
additional conditions. The Planning Commission was in fa~or of tne major
design elements but requested changes to the sailing ~tatio!1, parking lot,
berms} changing atea, portable toi1ets~ beflcnes, paths ir'!{j planting to further
minimize the physical and ~isual i~pacts of the p;oj((t and increase its
compatibtlity with the natural Baj1ands setting.
fhe follcwing. changes were made to the project des:'gn in response to Pla~ning
Commission requests:
o The parking lot and pathways will be surfaced with base rock and
decomposed granite. respedive1y. instead of asphalt;
a The number of berms hav': been reduced from 7 to 5 and 10wered ; n
height from 30 inches to 18 inches (with a ma~jmum of 12-ir.ch-high
1 andscapIng,;
o The gang~a,. of the sat1ing station has been realigned to accornrnoddte
rowers and additional const1"~("tion details are included in the
plans;
o Green cable wlll be u~ed in the perimeter bullards ;nste~d of yellow
cable:
o The portable toilets and changIng areas were relocated tQ the
northwest corner of the parking lot to better minimize their visual
impacts;
Q Benches with back5 w:II b~ used instead of benc~es ~ithout baCKS;
and
o The plant list has been revised to include only species well suited
to the Baylands setting and clarify the areas each specie ~il1 be
used.
Staff discussed the issue of pathway and parking lot surfacing wit~ BCDC's
permit analyst. BCOC requires that pubic access pathway i~provements be
handicap accessible with a low le~el of maintenance. Although BCDC's first
doice is asphalt. they will accept decomposed granite prolJided an acceptable
level of ma;nt~nance is performed ar.d adhereCi to. In contrast, they nct€ that
crushed oyster shell paths do require more maintenance than ather mater~als
and approvil of this chOice of material is un1ikely. Be De also indicdted that
base rock. is acceptable for the park.ing lot pro\dded ~~tis.factor"j levels of
maintenance are complied with. Tne Public ~crks Oepartmpnt ~ishes to
reiterate its long-standing policy based on best professional judgment thJt
the best surface material for areas subject to ~ehic1e use is asphaltic
concrete. due to its Tow maintenance requirements and ['Jst effectiveness.
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ArcJtitectural Review Board Actio~_Suff~~s...g
At the meeting of March 7. H9L the Ard'IHectllril Re .... 'ih· BoarJ {ARB} \/Clted
unanimousl)' (5-0j to recolMlend appron1 of the Mitigited Negative Declaration
and Sit~ and D£:iigr. applicatl0n 'iIIith some minor de~i9n (Manges.. The following
c~angp.s were made t~ the project design in response to ARB reQue)ts:
~ The picnic area jn the tenter island of the parking lot has been
relocat~1 and consol idatt!q with the prGposed picnic area aajace;lt to
the marsh restoration site, providing a mere usable and attractive
setting.
o Scre~n landscaping has bee~ added around the toilet and changing
areas to minimize the ... isual impact.
{l The oarking lot has been tllodifjed to add additional parking spaces
facing out along thE $outhea~tern perimeter of the lot to maximjz€
t~e viewing opportunities from within ca~s.
o A 9rey colored non·slip matting surface materj~l is specified fer
the sailing station ramp and float instead of brown, so as tc blend
better with the colors of t~e sailing stat jon and surrour.di~g
Baylands,
The ARB r~quested that staff consider reiocating the toilet and changi~g areas
closer tn the saiiing station to make them more convenient for small bOdt
er.t~us1asts. Staff considered seven1 relocation options and recQlmlends tnat
thE tOilet and changing areas remai~ ~herf currently proposed. This location
is favored b-ecau$e it does not block any major bay 'l'iews and ta~es. ad ... ·antage
of the screening pro~ided by the existing berm located a10ng the south
perimeter of the picnic area. The clJrrent laC-ilion c.omblned .. ,ttl additional
screen landscGplng will minimize its wisual impacts to the greatest degree
pos~lble~ whic~ ~as a request of the Planning Commission. Al~o, tne current
location will provide reasonable access to small boat ent~u$ias.ts while being
very c.or,venlent for people using the picnic area, particularly as this area
has been consolidated and enlarged. A path connection from the perimet€r
bicycle/pedestrian path has also been added to provide a direct ccnnectio(1 to
the picniC area a~d more conve~ient access to the toilets.
The Munlcipal Code r€Quires that before any suc$tantial building.
construction, reconstruction or development is tommenced on City oarl land.
the (CHinen II'ItJst first appro .... e a Park. Improvement Ordinance. .a.. cCP1 of the
Palo Alto H~rbor Park Improvement Ordinance is attached for Council action
(Attachment I),
Regu]Mon Agenc)' ____ A~!l_r..Q_·(~J IResol utjon
Apart frum the City's Site and Design approval proc.ess, several federal <ind
stile agencies hJ .... e regulatory permit control of this projecL The main
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agefl-cies. jru::lud-e aCDC, United States Army C.orps of Er,gineers, State lands.
Commission and State WatEr P,'?s.ource.s Centro1 Boal'd. In crder to s.tart ",or~"
BlOC will need' to \S.~uc a con<;tructlon permit to the {'Ity. There-fore, staff
recolTfl1end:; that Council approve ,a rt:!solution fo'l'" application to BCDC for a
permit (Attachment Ill.
It is clear that some mi~or changes to the plans will take place a3 the
project .. oves through the formil permitting stage. Since such changes, if
required, wl1l likely be made to further minimil~ project impacts, staff ~as
recufT'l'r.ended that the City's PlanrJilig Divjsinn i.nd Pub1ic lriarks Department be
autl1nrilcd to make minor "nj nonsubstanth'e changes to the phns, provlded the
goals of the Bayhnds Master Plan are not c.cr::promised and the Capital
Improvement Pnlject budget OJI accQ~odate t~e c~anges. S ... c.h a pro· .... i s ion is
incorporated into the recommended conditions of apprc~11.
RECOMHfNDA TI ONS
Staff r~cQ'Mlends the City Council take the followin9 actions to implement the
slte and design application:
1. As rec~mmended by the Planning Commission and Architect~ral Re~ie~ Boar~
the City Council should:
i. find that the projeo:t will not ha\le any significant enviropmerltal
impacts and adopt the Mitigated Negative Declaration pro~ided in
Attachment L (91"fIA-l);
b+ Approve the Site and Design application subject to the findings and
conditions li~ted belo~;
2. Adopt the ParK Improvement Ordinance provided in Attach~ent I; and
3. Adopt the Rescluticn for Application to 8CO( for the required
construction permit as prawided l!1 Attachment II.
FINDINGS
I. The project lIIil1 not ha\,/e any Significant environmental impacts, in that
the marsh restordtion portion of the project is itself a mitigation of
pr~vious dredging acti\lities, and measures have been incorporated into
the project design to mir,fmize any adverse impacts on area ~ildlife, and
area recreational opportunities;
2. The proposed design will be orderly. harmonlnus and cumpatibie with
~xistlng or potential uses of adjoining property, in that the proPo5ed
use and improvements ~ill be similar to other uses existing in the ared
and \ljill enhance e)(istin~ wildlife habitat and recreational
opportunities;
3. The project .ill maintain desirability of in~estment in the same or
adjacent areas, in th~t the proposed improvements, new pede5trian
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pathways, viewing stations, saiUng station and park.ing lot u~grad~ .. ili
ennanc~ the use of a ~aTuable c~r.ity open space resource, preser~e a
historic structure lr. compliance with applicable b~tlding code~ and
improve and protect the en~iron~~nta' Qualit) of the Baylan~s mar~~
areas.
4. The proposed desi9n will obs~rve sound principles of enyjronmental
de$lg~ and e~olo9ica' balance, in that t~e excavation, grading and
rephnUr-9 pr()posed for the Ilarsh porti,:,n Qf the project \lil1 return tt1e
site to its previous natwral condition; and the public access
opportunitles nave been carefully deSigned to minimize lmpacts on the
surrounding bay and mars~land. area wildlife, in~ bay ~ie~s.
5. The proposed use will be in accord with tne Pilo Alto Comprfhensive
Plan. ind BayTands ~aster Pian) in tnat tne proposed improvements and
recreat~cnal ~ses conform to tne intent of the City Conservation land
des!gnati~n and BaJlands Master Plin to pre5er~e and enhance the natural
state of the land, yet allow compatible recreational and educatinnal
acti~ities and also comply with the intent of the Baylands Master Plan
to de .... elop an environmerrtallJ' ac.ceptable plan for disposal of mud
dredged frem the previous y~cnt harbor.
CONDI1 lONS
1. All mitigation mei!.5UreS id~ntifjed in the project's enllircnmental
assessment (:il-ErA-l) shall be incorporated into the project design and
construction, includin9:
i. Dredge material shall be removed from Harbor POint to cre.ate ne~
marshland areas and res~lt in i net 9ain of II acres of marsh1and_
b~ A marshland planting program (seeding of pickle ~eed and cordgrass)
shall be required to ass~re I more rapid establishment of native
plants in the restored mars~ irea than if the area ~ere to be
restored exclusjv~lJ through niturll proc~s~es.
c. The design of the new sailin9 st.ation shall include a raised pier
and a platform for the dock to en~ourage wildl ife access between
Mundy Marsh and ~arbor Point and minimlze destruction Df b~ntnic
organ isms.
d. (onstructiQn activitJ snail ~ reQuired to temply with the City's
Noise Ordinance, an.d th! CitJ~s Public Works Depirtment shall be
responsible for monitoring tr~(k traffic levels, and assuring proper
maifltenance of iil eart~ transport ro~tes.
e. Removal of the existing bo.at ramp shall be required to provide a
sufficient wildlife corridor between the ne~ marsh at Harbor P01nt
and Mundy MarsM.
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f. Construction of t:i1rt'" ber'lI\s and pro .... isian of planting ~!1al1 b£!
rfquired tc ~inimile visUJl impacts of the parking lot.
2. Prior to issuance of i1 building permit and initiation of co~struction.
all necessary Gpprn .... als from a1i r~gulatory agencies having permit
authority shall be obtained, E .. idence ()f s'Jch approvals shall bt!
provided to the Plann1ng Oepart~nt prior to issuance of a builJing
permit.
3. Project (o~pliance with all mitigation ~easures identified in the
erw~ronmenta' assessment (91-EIA-l) and any further mitigations
identified as conditions of any regulator), agency app~c~als shall be
monitored and enforced throughout the constr"uct ion process by the P"bl tc
WOl"ks Department.
4. Prior to completio'1 of bidding documents, a detaned hndscape pian and
irrigation p1an shall be submitted to the Planning Department for revie~
and appro\lal. The final plan shail ~nclude the common and botanical
r.ames of ail s,pe;cies uSt!d and the number, t.'IIpe, location and spacing of
all phnt materials. The final plan shall also include details for' all
furniture-proposed, including benches, bicycle racks, picniC tables.
drinKing fountains, waste receptacles, toilet and changing area.
5. All plans and ~pecific~tions fer the project Shall be subject to re~ie~
and approval of City staff prior to construction. Minor modifications
to the project plans may be made subject to the apprc'ial of bath the
Planning O;~ision and PubHc Works Depa.rtment. ,provided that such
changes are found to be in substantial compliance with the original
proje~t des~gn~ will not increase the project's environmental impact~ or
result if) a substantial cnan3e in project costs.
6. Prier to widening of the !1<lrbor access road ;n the vicinity of the
lagoon culvert, the contractor will be required to providE a traffic
control plan, to be submitted for appro¥al to the City's Publlc Works
Department and Transportation Dl~i$1on. The traffic control plan will
limit road w~rk to ~€ekdays in order to minimize traffic impacts on the
recreatio~ area during the weekend.
7. An educational series of -rnterpretiliE: Signs." ~.hall be de'lleloped an::!
placed at the viewing stations (bench locations} surrounding the parking
lot and new marsh area. Final design and location of such signs
snall be approved by the ARB priQr to ir.stal1ation.
RespectfulTy submitted, 'f: " / ' . Jl Itt' (I.. /~{i(l1..id ('-'-
K£ NETH R, SCHREIBER
Oirector of Planning and
Co~nity Environment
CMR,lBl :91
p:\cmr\ha,bor
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DAVE G, ADAMS
Assistant Direct.or of
Public Works
3/ J4/91
Page 7
I. Park fmpfOVlment Qrdini!'lCt
Jf. Resolution for ICDe A~piication
llf. Planning CCrIIIliUilHl Stiff Report dated 2/8/91
l¥. A"nitectural ~ •• i ... Boord l1e.orandum dated 3/7/91
V. £!~
'WI. Pl ans {Cou",l1 NtN.rs only;
YII. Photos (Council ",~.rs onll)
cc: Palo Alto Hlstoric Resourc" Iotr4
Santina and ThOMpson, 1355 Will;w W~y, Suite 280~ Concord, CA 94520,
Attn: Mr. Mike Middleton
George Zimmerman~ Assistant PlinnioQ Official
Dan Williams, Oir~ctor, Rec.rtatfon, Open Spa.ce &. Scienc.es Division
Bill Fellman, Manager, Real Property
Sue Case, Senior Assistant City Att~rney
Architectural Reyiew Board
PlannlnQ Commission
CMR: lSI :91
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AT r ACHMEr-<T I
ORDINMICE NO.
ORDINANCE OF THE COUNCIL OF THE CITY OF PALO ALTO
APPROVING AND ADOPTING THE PALO ALTO HARBOR
ll<PROVEHENTS PLAN (PALO AI.TO BAYLANOS)
WHEREAS, nrticle VIII Qf the Charter of the city of ralo
Alto and Section 22.08.005 of the Palo Alto Municipal Code require
that before any substantial building, constr~ction, reconstruction
or development is commenced or ~pproved, upon or vith respect to
any land held by t~'Le City for park purposes, the Council shall
first cause to be prepared ar.d by ordinance approve and adopt a
plan therefor: and
~~ERZAS, in Jan~ary of 1988 the City Council approved in
concept a range of capital improvement program (WCIP"J options for
the Palo Alto Harbor, located within the C'ity-owned and park
dedicated Baylands property; and
WHEREAS, the elP for the Palo Alto Harbor and the Baylar.ds
Master Plan provide ior the construction ot a ne~ &ailing station
incorpora.ting an upgrade.d par'king lot and pub1.ic access
ieprovements, restoration of 11~2 acres of marsh at Harbor Point in
t~o phases and renovation of the former Harbor ~ster's Cottage
(the ·Project-); and
WHEREAS, santina and Thompson Engineers have prepared p.lans
for the Froject entitled ·Palo Alto Harbor Improve:nents, II dated
February 13~ 1991 (the ·Plans·); and
WHEREAS, the Plans have been reviewed and recommended for
approval by the Architectural Review Board and the Planning
comwission pursuant to Chapter 18.82 of the Palo Alto Municipal
Code (Site and Design Review); and
waEREAS, the Council desires to approve the Plans and to
adopt them as the official plans for the construction of the
Project ~ithin the Palo Alto Baylands;
NOW, THEF.EFORE~ the Council of the city of Palo. Alto dooas
ORDAIN as follows:
SECTION 1. The City Council hereby approves and adopts
Mitigated Negative Declaration Number 9~-EIA-l for the Project and
finds that the Proj ect \iill not have any sigl',ificant environn:ental
impacts.
SECTION 2. The Plans, a copy of vhich are attached to this
ordinance as Exhibit -A" and incorporated herein by this reference,
are hereby approved and adopted.
SECTION 3~ This ordinance shall become effective upon tne
commencement of the thirty-first day after the day of its adoption.
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INTRODUCED:
PASSED:
AYES: /
NOES:
ABSTENTIONS:
ABSENT:
ATTEST: APPROVEO:
City Clerk Mayor
City Manager
APPROVED AS TO FORM:
Di~ector of Public Works
It,ssistant City Attorney
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RESOWTION NO.
RESOLUTION OF THE COUNCIL OF THE CITY OF PALO ALTO
AUTHORIZING AND DIRECTING THE C1TY MANAGER TO
EXECUTE THE PERMIT APPLICATION TO SAN FRANCISCO
BAY CONSERVATION AND DEVELOPHENT COMKISSION FOR
1'IIZ PALO ALTO HARBOR PROJECT
WHEREAS, the City Cour.cil has approved and adopted a
project for the Palo Alto Harbor, within the city-owned say!ands
property, which includes the construction of a new sailing station
incorporating an upgraded parking lot and public access improve
ments; and the restoration of 1~~2 acres of marsh at H~rbor Point
in t~o phasec (the ·Project-); and
~S, the City currently holds Permit No~ 11-81 issued
by the San Francisco Bay Conservation and Development Commission
(-BeOC-) related to the development of the Palo Alto Harbor; and
WHEREAS, the City is required to apply for and secure an
amended permit frem BCDC (th~ ·parmit W) in ord~r to proceed with
the Project; and
WHEREAS, the council desires to authorize and direct the
City Manager to execute the Permit appl ication and any relat~d
QocUJilents on behalf of the City, and also to pert'orm any other acts
that may be necessary to obtain the Permit from BCDC:
NOW .. THEREFORE .. the Council of the City of Palo Alto does
hereby RESOLVE as follows:
SECl'ION 1. The City Manager is he.reby authorized and
directed, for and on behalf of the City, to execute and deliver the
Perait application to BeDC and to otherwise represent and bind the
City with respect to the permit appl ication in order to perform the
Project or any ~rtion thereot. The City Ma!1ag-er is further
authorized and directed to execute any other ~~ents and perform
any other acts that may b~ necessary to obtain the Permit.
SECTION 2. The city cO~icil hereby finds that the Project
will not have any significant environmental impacts.
INTRODUCED AND PASSED:
AYES:
NOES:
ABSENT:
A.BSTENTIONS:
1
A'l'T1!ST: APPROVZO,
City Clerk Ka.yor
APPRO\'!:D AS TO FORM,
City Mal'laqer-
Assistant city Attorney
Director of PUblic Works
2
';lTACIiMt:~T lIt
TO: PALO ALTC PLANNING COMMISSION
FILE NO.: 91-0·1, 91-EIA-J
PREPARED BY: J. Harr1ngton, S. C.t,eney
DATE: February 8, 199]
~PR~O~J~EC~T~IM~Q~~~T~rO~NL-_______________________________________ _
locat ion:
FROJ£CT SUMllARY
Palo Alto Harbor Improvements
2500 Embarcadero Road
Pale Alto, CA 94303
City of Palo Alto
Public WorKS Department
250 Hamilton Avenue
Pa10 Alto, (A 94)01
City of Palo Alto
250 Hamilton Aver.ua
Palo Alto, CA 9430l
Site and Design Revlew
The project is i. Site and Design approval to al low harbor improvements
coo~tstfng of marsh restoratfon~ sailing station and associated parking lot
construction t public access and restoration of the former Harbor Haster's
Cottage.
RECOMMENDED ACTION .---.-.-.. --------
Staff recommends tnat the Planning Commi~sion approve the Mitigated Negative
Declaration and recommend that the (ity (ouncil appro~e the project subject to
the findings and conditions listed i~ this st~ff report.
SITE I MFO rw.""""Tl"'O"N ____________ _
Pa_r_c_el_$iz~: Area affected by proposed improvements is
approximately 14 acres
Marsh/SC Pag" J
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I
I
[Xist;~9 19n;n9~
ComprehenSlse Plan
Desiqnatioll~
PF(D) Public Facllitio, (Sito and Oo,lgn Ro,i ••
Combining DistrictJ
City Conservation lands
Exi __ stit19 Land Use: Open space, characterized by bayland areas cons.isting
of existing wetland areas and harbor environ5.
[xisting man-made improvements include access roads,
f~rmer dredge spoils, parking lots? Lucy [vans
Interpretive Center 9 Sea Scout buildi~g, Harbor
Mister's Cottage and duck pond.
Syrrounding land Use: The project site meets the San Francisco Bay at its
north and easter~ edge. To the south lies the Harbor
and Byxbee Park. further t~ the west are tne Pila
Alt. Airport and t~e City of Palo Alt. Water Quality
Treatment Plant.
Enyironmental Impact
Assessment: An ir:itial study whicn 1d~ntifies potential impacts
and mitigation measures and which recommends adept ion
of a mitigated HeQati~e Declarati~n is enclosed with
this report. Additfonal copies of the environmental
assessment are available for public review at the
Planning Department located on the 5th floor of City
Hall at 250 Hamilton A~enue, and the City libraries.
tfiston; The project represents the implelT".entation of relevant
elements of the Baylands ~aste~ Plan as described in
the 5-year Capital improvement Program for the Palo
Alto Harbor~ Construction .~tlvlties will take place
during the summer and fill of 1991. One phase of the
pr~ject requires that restoratfon of a 4-acre marsb be
completed prior to January I, 1992, as ~andated by San
Francisco Bay Conservation and Development C~mmission
(BCDC) permit c~nditions issued to the City in 1981.
~Y~I~S __________ . ______ __
Project OescriP.i.jon
The project consists of three basic elements: 1) construction of a new
sailing station incorporating an upgraded parking ]~t. and new p~bl;c access
j~rovesents; 2) restoration of 11.2 acres of ~ar5h in two phases, subject to
available fundlng. at Harbor Point in the Bayland$~ and 3) renovation of the
former Harbor Master's Cottage. The improwements serve to prom3te public
access, create posithre enwironmental conditions for the Palo Alto Baylands
Karsh/SC Page 2
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ind restore existing ~~(bite(tuTll elements of hi~toric interest. The
i~ro~ements are further described below.
llili.~9. Station/Parking lot/Publi_~.ktll.
The sailing station is designed to serve only sma1l nand-carried sailing
vessels wit" shallow drafts such is lazers, sunfish and sailboards. Canoe and
kay.k ent~u$;asts will also find the new salTing station suitable for their
ne~s+ Tne facility will be s1ted in the c~annel at the confluence of the
C~arleston Slough, located appro~imately 350 feet east of the e~istjng boat
ramp. It will consist of an elevated fixed pier, IO-feet-wide. extending
approximately 200 feet out ,nto the deepest pa~t of the channel. The elevated
pier will be connect~d to a 100·foot·long f10ating dock by way of a 6-foot
wide gangway.
The existing boat ramp will be removed is part of the environmental assessment
mitigation ~asures of the marsh restoration and sailing station proje(ts.
This. !tem ;s further desocribed in the section -Issues of Ccncern~-Irnpact on
Wildl ife.·
The existing unpaved parking lot is Tocated east of Harbor Point and meets
Mundy Marsh near the Bay. Tne improvements will consist of pa~ing the
eXistif'ig parking lot, fonrling peripheral earH *n!lS with appropriate
landscaping and striping of the pavement to provide approximately 40 parking
spaces, includin~ several boat trailer spaces. Tne 1.S-acre site will include
II publ ie teTephone, portable teilets, cnanging area, picflic tables, wastE!
receptacles, bike racks, drinking fountains and a boat ho~e-off ire~.
Another puhlic access element of the project includes the jnstallatio~ of a
bike/pedestrian patn~ -linking the new parking Tot with the lucy Evans
IRterpreti~e Center parking lot. The path will terminate ~t the existing
shell path adjacent to the lagoon culvert. This will require minor widtning
of the Harbor access road at the culvert area to accommodate vehicle,
pedestriar. and bicycle traffic. Observation stations ~11 be located it the
northeastern and southeastern corners of Harbor Point in~ at ~arious other
locations sho~~ or. the project plans. Th~se observat1on stations will inc1ude
interpretive placards? gh'ing relevant w; ldl ife infonnation. Construction of
a rlised walkway (boardwalk) is proposed as a future element to provide aCcess
to Mundy Marsh Vii the existlng Pacifit Gas and Electric boardwalk. Issues
relating to liability, easements t handicap access and funding need to be
resolved before t~is element can be implemented. These issues ire not part of
the current proposal.
~E:i'h Restoration
The p1ans call for t~e ultimate restoration of 11.2 acres of mars~ at Harbor
Point 11 two phases. The first phase, located along the souther~ boundary of
Harbor Point, consists of a 4-acre site. The first phaSE (~storition is
current11 funded and is mandated as a condition to tne City's previous harbor
dredging penti! issued by BCOC. Up to • dept~ of 1 to B feet ef former dredge
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1 material (consisting of approximatel1 58,000 cubic yards) will be eXCivated to
form the natural features of a tidal marsh. T~e spoils will be removed to the
Palo Alto landfill and used as the regulatory foundation mater~al which is one
of the ·cover-layers required is part of the c10sure of the landfill and
creation of a n~w phase of Byxbee Park. Earthworks are scheduled to begin in
the ~all of 1991.
The second phase. consistlng of the remaining 7.2 acres. ~il1 req~ire the
removal of a~proximate'1 82,000 cubic yards of former dredge spoils to the
landfill s\te. Timing of this phase i~ planned IS part of the formation of
t~e proposed "ars~ Nitig4tion Bank~ It is hoped that restoration of this 7.2-
acre phase Df the project ~ill occ~r one or t~o years after restoration of the
4-acre lliI~sh_ Hlese plans are subjed to funding from the Cal ifornia Coastal
(ons~rvancy or so~ other sUitab1e sou~ce.
Harbor Master~s Cottag!
This adobe-clad, Spanish-style cottage is a point of historfcal iDterest. and
is listed as a Category 2 structure (building of major regional importance) on
the (;ty of Palo Alto Historic Bulld;ngs Inv,ntory. It is located at 2500
rmbarcadero Road and lies adjacent t~ the duck pond. The building conSists of
the original structure b~ilt in 1937 and two additions added in ]947. Because
of e~tEnsive dlmage resulting from age, termite infestation, and earthquake
damage, the project includes the demolition of the lean-to additions and major
repair of tbe roof, foundation, .alls, floor and el~ctrical and plumbing
items. The improvements will result in restoration of the cottage to its
originai 1937 architectural style.
The estim~te of the cost of th~ proposed impro¥ements amounts to S100.000~
whj~h is in Excess of the budgp.t amount of $50,000. Recommended action is
discussed further lD this report i~ the sect~on entitled -Issues of Concern.-
BaCKground
In January ]988, Council approved a range of capital improvement options
described in i study of the Palo Alto Harbor prepared by Cit1 consultants
Santini and Thompson, Jnc. Tne first t~ree years of a five-year
implementation plan nave been budgeted in the Cityls Capital Improvement
Program. The five-year plan provides far the implementation of the projects
described abowe and also the development of a marsn ~itigation bank, ~pdating
the Baylands Master Pla~, and construction ~f varfous paths, parking lots and
lagoon i~prove~nts.
A summary of the history and back9round of each of t~e ~urrent projects is
presented below_
Sailing Station and Puking _l.9.1: Several meetings have been held with small
boat enthusiasts and it was noted that the Palo Alt~ site presented an
opportunlty for small boat sailors, board sailors and canoeists to gain better
access to South Say waters. as ether Bay access pOints are ioeated furtner
Marsh/SC Page 4
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north at Coyote PQ1~t and Red'lII'ood CH),. In July )990. (ouneil eViluated the
resolts of the consultant's latest hydro1ogical study r~Tatlng to the
feasibi I ity of the san ing station Pl'Oj~ct and autr.oriled staff to proceed
~ith a detailed design. The parking lot design incorporates goals and visual
feitures identified in tne Baylands ~aster Plan.
Marsh RestQrition: In 19~2, the San Francisco Bay Ccnservation and
OeveloPlOnt Commission (BeOC) .llrnoed the Citj of Palo Alto to dredge tne
harbor one last time, with all work relating to dredg1ng to be (ompleted by
1986. One of the conditions of t~e permit issued to allow this work (Permit
8]-11) reQu;r~ t~e C1t)' to restore 4.0 acres at Harbor P01r.t to mars~la~ds by
January 1. 1992. Tbis area is identified as Phase I of the City's wetland
project. The remaining 7.2 acres (?hase rI) has been set as~de as a suitable
site for a Marsh Mitigation Sank.
Harbor Master's Cottage: The C~ttige is currently occupied on i part~time
basls by City of Palo Alto park rangers who use the building as an office when
perfonaing t~eir duties overseeing the 2,OOO·acre Bdylands open space
preserve. Tne Cottage is a version of spa"ish colon}!l revival style and was
constructed in ]937 as part of a Works Program Administration project fer
developing the former Yacht Harbo~_
In April and November of ]990. stiff presented plans for the renov.tion of the
Cottage to the Palo Alto Historic Resources Board (90-HRB-6). The Board voted
to support the planned renovations. However. the Board stated that if
renovation plans are not feasible because of fiscal constraints, it
recommended consideration of ilter~ative methods of stabilizing the adobe
building. The Boardls expectation is that same of the renovation costs could
be lowered. It is also suggested that staff consider a more limited use for
the building such is storage or maintenance irei for the park rangers.
Further methods of stabilizing the b~ildin9 may not be necessary if a new
source of funding is found. This Is ~iscussed below ~nder ~Issues of
Conc.ertl."
ISSUES Of CONCERN
II!1P.act on Wildli fe
T~e enVironmental impact assessment evaluated the impact of this project on
ani.al 1 ife. Tnere are ~everiJl endangered, th~ater.ed and rare species that
eX1st in the tidal salt marsh and ~udflit subtidal habitits arou~ the Harbor
Paint area, These species ire Californfa Clapper Rail. Califor~ia Bl~ck P.ail.
Salt Marsh Harvest Mouse, and Salt Marsh Wandering S~rew. Tne specie rmpacts
are summarized in the enclosed environmental assessment and described. in
detail, i~ the technical report, ·Wetlands Enhancement and Restoration/palo
Alto Baylands,· prepared by Wetlan~ Rescurces Associates. in 1~87,
incorporated into the environmentil assessment by reference.
Jfarsh/SC Page S
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The objective of the new marsh habitat is to return the former dredge spoll
areas at Harbor Point t~ marsh b, ree~tablisning tidal flows and recreating
habitat areas suitable f~r wildlife. Low cord grass marsh and small (hannel
fo~a9ing areas w;11 be created for the California CTapper Aails. Harsh pTa;"
pickl.weed hbiht. _ill be cre.ted for the Clapper R,ils and Salt Marsh
Harvest MG\Jse-anlj shrub buffer and upland I,abitat will be created adjacent to
excavated wetlands, surrolJiiding the parKing: lot, and along the miln a(.cess
road.
O'llerall, even though I small n!Munt of wet1and may bE teml.loraril,)' impacte·j
during the installation ~f the sailing station, the restoraticn of the area of
the former boat ramp and the new wetland project ~ill p~ovide a net gain in
habitat for these species, which is considered a positi~e impact.
Removal of the existing boat ramp has been identified as a mitigation meas~re
for this project~ It is n~ted that the exfsting boat ramp is at the end of
its usef~l life and its practical use is extremely limited du~ to extensive
siltation of the Tilmp area. The ramp must Of:: removed in order tl) creat!! an
85-foot-wfc!i! wildl; fe cl1rridor a10ng the r.arbor channel foreshore to provide
access for wildlife and a habitat connection from the e~ist1ng Mundy marsh
area tQ the prD~osed Harbor Point marsh restoratfon project.
The sailing statlon also incorporates design features aimed at preserving the
natural ~vement of birds and animals within th~ wildlife corridor. This is
ac~ieved by elevating the 20C-fooi-long fixed pier abo~e the ~arsh ind wetland
zone, and providln9 sufficient pass throtJgft areas bela •.
lhe State DepartrReflt of Fish and Game has re\lielcted the project and advised
t~at the four acre marsh restoration -is commendable although limited-in
scale. They ~ould prefer that the entire site be restored concurrently.
Unfortunately, this is not possible gi~en the BCOC deadline of January 1992.
and the unavailability of fundiM9. Howe~er, staff will proceed with setting
up the pr3posed ~;ti9ation Bank. ~ile there may be a del~ of one or two
years in proceeding with the second 7.2-acre phase~ the marsh plan has been
configured and designed to ~iflimlze ~ildljfe impacts by creating an upland
transition zone between Phase 1 and Phase fl.
~Qll~tr!Jct ion Act; ",ities
There will be numerous constructfon vehicles operating within the parking lut
during tha exciyatiQn of the dredge spoils and restoration of the first phase
of the 4_0-acre marsh. nIh. will include clJn'itn:ctiol'l equipment ~sed to
construct the parking lot and sailing station~ and to demolish the old boat
ramp. It is estimated that it "ill tak~ approxlmately 12 work weeks ill order
to ha~T approximately sa,ooo cubic yards of dredge spoiTs to the landfill
site_ Ap~roximately 3,000 truck. loads. of spoil will be T!eces.sary~
The Public Works Department will arrdnga for public information and
construction advisory signs to be post~ throu9hout t~e constructl~n cDrridor.
The City w111 monitor truck traffic to ensure that thE truck routes as
Karsh/SC Page 6
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established in the contract de<uments arf complftd .ith~ and trucks are
operated safely and that spillage rloes r.ct occur. or if it occurs. it Is
quickly cleaned up by the contractor. rt is not ~ntfc~pated that the
conditions of roads ~sed bjl' the tNc.ks ..,nl dfterfarate as i result of heavy
loads. If it does occur~ it will be repaired by the contractor in accordance
with the requirements of the Public Works Department.
Tne truck traffic will not ~aye a significant ir~act on public usage of the
lucy Evans IDterpretive Center and duck pond areas since u~e of tne
construction traffic route by the public is minima' duri"9 the weex, and
construction activities will be limit!d on weekends, ~hich is ~hen the
8aylands area receives most of its visitors.
Noise levels at the project ~ite will be temporarily raised durfng
construction acthities.. Staff will monitor the ",·erlc to ens.t:re that nDisy
op~rattons be lim1ted to hours ccnifstent witn the City's No~se Ordinance.
As i"dic~ted above~ the former drfdge spoils ~1]1 be transported to the
landfill to be used as foundation materia', The City's consultant has tested
the former dredge spoils and advises that the material will be suitabTe for
the ;~tended purpose+ City staff is awaiting conffrmatlon fro~ the State
Regional Water Quality Board.
Ptlblic Access
One of the conditions of SCOC permit 81-11, which was imposed on the City ~s
part of the last dredging Gperation, requ~red that certain public access
improvements con5istfng of pathways as showr. ;~ the 19i9 Bayland3 ~aster Plan
be implemented prior to January I, 1991. The 1979 BayTands Master Plan called
far public access paths on the 1.2-acre slte naw proposed for mars~
restoratfon. In January of 1988 J when taking actfon on t~e Yacht Harbor
Restoration Study, the CUy Council approved IIOdiffcations to H,e Saylands
Master Plan and directed staff to deyelop designs for the ~Ttfmate restoration
of 22 acres of ~arshland, of whic~ t~e 7.2 acres are a part. Palo Alto staff
has had discussions with BCD( staff, seeking to resolvt ~ow the earlier seoc
public access req~irements impcsed in August of l~Bl can now be fnte~rated
into the new p1anned site~ which now includes the expanded IJ.2·acrE marsh
resto~atiQn at Harbor Point. As a result of these discussions, additfonal
access improvements (pi::.nlc arelS, pat~ connections, additional viewing
stations) were incorporated intG the project desig~ ta provide equivalent
public access. The Envircnmer.tal Impact Assessment has been amended to
reflect that the additional access ;mpro~eme~ts required by eeoc will not have
a s-ignificant impact on t~e environment.
The goal of marsh restoration projects is tn Qa~im!ze and concentrate habitat
ireas. In order to facilitate this goal, public access to the new mars~lands
will be limited to interpretive ohs€r~atjon static~s and the new
pedestrian/bicycle path to be constructed along tilt eastern boundary of the
Il.l-acre marsn. This pathway .-ill also link the sailing station parking lot
to the Interpretive Center parking lot, and connect tG an e)isting shell pat~
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"djaocent to the lagoon culvert. lhese proposed access. impr~ ... ements ~ave been
appro~ed in princfpal by BCOC's permit analyst. It;s us~al to appiy for
formal seoc approval, immediately follo~ing (ouneil action on the [IA and
proje<: t .
!t~LJ.!Lll!'1pact
An earth berm of approximately 3 feet in height and phnted' with native
landscaping will be added around the parking lot to isolate human activity
from the env;ro~menta11y sensitive mar~hland areas. The berms also serve to
screen the cars in accordance with the goals of the 8aylands Master Plan. The
design and layout of the berms w111 5ti11 allow ample viewing opportun1t~es of
the Bay.
Harbol" )Iaster's Cottage
Staff has recently beco~ aware of additional funds ~hich may be made
iVilllabie from the Santa C1cra County Historical COl'M1ission. Staff is hopeful
that the 9rant funds will sati~fy the SSO,OOO budget shortfall. A fonnal
application will b~ submitted on february 14, 1991.
Regylatorv Agency Apnroval
Apart from t~e City's Site and Desfgn approval process, sev~ral Federal and
State A92ncies ~il1 have regulatory permit control of t~fs project. Tne main
agencies includ~; BCDC, United States Army Corps of [ngineer~~ State lands
Commission and State Wat~r Resources Control Board.
rt ls clear that some minor changes t'J the phns .. ill take place as the
project mo'lles through the formal pernlitting stage. Since such chaf'lges, if
required, will likelJ be made to further minimize project impacts, staff has
recommended that the City's Planning Di~ision and P~blic Wnrks Depa~tment be
authorized to make minor and nonsubstantive changes to the plans, provided the
goals of the 8aylands Master Plan are not compromised and the Ca?ital
Impro~ement Project budget can accommodite the changes. suc~ a provfsion is
inclJrporated 1"to the recommended c{lnditions of approval.
RECI)!!!lJJ,=IIlAT.wl",O,,-" ----
Staff recommends tnat the PJanr.ing Commission approve the mitigated oegative
declaration and reconmend that t.he City COiJncil appro'lle the project suhject to
the findings and conditions listed below.
FIIII)JJII6S'----___________ _
I. The project will not hall2 any significant en'tironmental impacts, in that
the l1a;~sh restoration portion of the project is itself iI mitigation of
previous dredging activities, and measure~ have been i~corporated into
tne proje(t design to mirllmize ar.y ad .... erse impacts O!l area wildlife, and
area recreational opportunities;
Marsh/SC Page 8
2'. Tbe proposed design will be .orderly. "armoniot4~ and camp~tible with
existi~9 or potential uses of adjoining property) in that the proposed
use and 1mprovements will be sfmilar to Qther uses existing 1n the area
iind will enhancE exi sting wildl; fE ftabitat ;nd reueil.tiona1
opportunities;
3. The proj!ct will malntain desirability of investment in the same or
adjacent arpas~ in that the proposed ;mpro¥ements, new pedestrian
patnways, ~ie~;ng stations? sailing station and parking lot upgrade will
E-nhan<:e the use I)f a \'al'LJab1e CaIJITlllnity op~n space resource, preserve a
~istoric structure in compliance with appljcabl~ building codes and
improve and protect the eqvironmenta1 quality of the Baylands marsh
areas. i
4. The proposed design lIIi11 {!bserve S(lund principle$. of environmental
deSign and ecolog~cal ba1arlce~ in that the excavation~ grading and
replanting proposed for the marsh portion of the project ~ill return the
site to its pr~vious naturil condition; and the public access
opportunities have been carefully designed to minimile impacts on the
surrounding bay and marshland, area wildlife t and bay ~je~s.
s. The propcsed use will ~e in accord with the Palo Alto Comprehensive
Plan, and Bayland~ ~aster plan. in that the pr~posed improvements and
recre~tional uses conform to the intent of the City Con~ervation land
desi-anation and Bayli.nds H"ster P1a!'1 to preserve and enhance the nat.ural
state of the land. yet allow compatible recreational and educational
activities and 11so comply with the intent of the 8ayTar;ds M~ster Plan
to develop an environmental11 acceptabl! plan for disposal of mud
dr·{!dged from the Prt,!l{lOUS yacht I'tarbor.
~!lI0!!5 ---------------------
1. All mltigati{}r'. meaSIJres identified in the project's environmental
assessment (91-EIA-l) ,hall be incorporated into the project design and
construction, including:
a. Dredge material shall be remcved from Harbor Point to create new
marshland areas and reSult in a net gain of 11 acres of ~arshllnd.
b. A marshland planting program (seeding of pl~kle weed and
cordgriillH) shall be required' to assu..-e iI more rapid establ ishment
of native plants ;~ t~e restored marsh are~ than if t~e area wai
to be restored exclUSIvely tnrcugh nat~ral processes.
c. Th~ deSign of the new safling station sha1l 1~lude a raised pier
and a platform for tr,e dock to encourage wildl ife access betweer.
Hund~ ~arsh and ~arbor Point and minimlze destruction of benthic
organi SillS.
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. -.,--
d. Construction activity shall be required tc comply with the Ct ... · 5
Noise Ordinanc~. and the City's Public Woris Department sha11 be
res,pcnsible for monitorir.g truck. traffic levels, and assul"ing
prQPf!r maintenance <If all earth t~'an:5port routes.
e. Removil.l of He e:::isting boat iamp shaH be requlred to prv'Jide a
suff;cient lIIijdllfe (Qrridor bE-tween the nelll mdnh at ~,a.,bor Point
and "'ilnd)' M2.r5h.
f. ConstructiGn of earth berms and provision of planting shall be
required to mfnimize visua~ impacts of tne parking lot.
2. Prior to issuance of a building permit and initiation of (or.structio~.
all n~(.essary appro..-als from a.n regulatory agendes having permit
authority shall be obtained. Evid2nc~ of such appro~a's ~hal' be
provided to the Planning Depa~·tment prior to issuance of a budding
permit.
3. Project compliance with all miti9ation measures identifi~d in the
environmental ass~ssment (91-£IA-IJ and any further mitigations
identified as conditions of any re9ulatory agency approvals shall be
monitored and enfo~ced tnroughout the construction process by the Public
Works Department.
4. Prioi' to completion of bidding documents, a deta1l'ed landscape plan and
irrigation plan shall La submitted to the Planni~~ Oepartme~t for review
and approval. The fmal plan shall incl:'Hl'e the COlTIT!on and botanical
names of all species used and the number. type, location and spacing of
all pT4nt materials. The final plan shall also include details for ail
furniture prop~sed, inc1uding benches, bicycle raCKS, picnic tables,
drinking fountains, ~~ste receptacles, toilet and changing area.
5. All plans and specifications for the project s.hiJll be subject to reviei!l
and approllal of CHy staff prior to construction. ~tir)or modific.ations
to the projec.t j::lans may be made subject to tne approval of both the
Planning Dil/ision and Public Works Department, provided that such
c~anges are found t~ be in substantial compliance with the original
project desi9n, ~ili not increase the project's environmental impacts or
result in a substantial change in project costs.
6. Prior to widening of the Harbor access road in the viclnHy of the
lagoon CUlvert, the contractor-will be required to pro· .. ide a traffic.
contr{)l plan, to be submitteo for approllal to the CHy's Public Works
Department and Transportation Division. The traffic control plan will
limit road work to .eekdays in order to minimize traffic. impacts on the
recreation area during t~e weekend.
7. .A.n educational series of '"Interpreti'.'e Signs" shall be de .... eloped and
pla-:i!1 at the viewing statilorlS (bench locatiol'ls) surrounding the parking
Marsh/SC Page 10
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lot ind ne~ .irs~ area. Final design and l~cation of such signs s~all
be approved by the Architect",.l RevIew Soard prIor to ;nst.llation.
"IT AClllfllTS
A) location Map
B) Photogr.phs
CJ Env1ronmental llllipact Assessment (Cormi1ssfart members M1,J
0) Plans (C~ission members only)
COPl ES 500 TO
Palo Alto Historic Resources Board
Santin •• nd lhompson, 1355 Willow Way, Suite 280, Concord, CA 94~O, Attn:
Mr. Mike Middleton
George Ziamenoan, Assistant Planning Offici.l
George Bagdon, Assistant Director Df Public Works
D~n Williams. Oirector, ~ecreat;o~, Open Space & Sciences Division
Bill fel1man~ Manag~r, Real Property
Sue Case, Se~ior Assistant City AttD~ney
Karsh/$( Page II
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Alm>oRT
11_ PAESEIIYE
~ SANTINA • '=' THOMPSON .... CITY OF PALO Al.TO
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~*'~~ .... -PEDESTRIAH/&IKE
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IMPROVEMENTS
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City of Palo Alto
Photographic Portfolio
Palo Alto Harbor Improvements
Project No. 18918
Exhibit B
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Harbor Master's Cottage
Palo Alto Harbor Improvements
Project No. 18918
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Harbor Master's Cottage
Palo Alto Harbor Improvements
Project No. 18918
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Harbor Master's Cottage
Palo Alto Harbor Improvements
Project No. 18918
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Existing Parking Lot And Boat Ramp
Palo Alto Harbor Improvements
Project No. 18918
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Existing Parking Lot And PG&E Bo'aniwI2ll{?;:;:::::=--:;;::T~
Palo Alto Harbor Improvements
Project No. 18918
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Site Of Proposed Sailing Station
Palo Alto Harbor Improvements
Project No. 18918
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Existing Boat Ramp
Palo Alto Harbor Improvements
Project No. 18918
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Harbor Point Viewed From Opposite
Side OJ Old Harbor
Palo Alto Harbor Improvements
Project No. 18918
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Harbor Point View OJ Proposed
7.2 Acre Marsh Restoration (Phase 2)
Palo Alto Harbor Improvements
Project No. 18918
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Harbor Point Vie,v OJ Proposed
4 Acre Marsh Restoration (Phase 1)
Palo Alto Harbor Improvements
Project No. 18918
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INFORMATIONAL MEMORANDUM
ARCHITECTURAL REVIEW SOARD
Harch 7. 19,1
A'f'IACH."ffiNT IV
II. REGULAA AGENDA
ZONING
3. 2500 Embarcad~ro Road •
ntJ of Palo Alto
91-ARB-20
SI-EI'\-1
91-0-1
PF[O)
Palo A't~ Harbor improvements consistins of 11 acres of marsh
restoration? new sailin9 station, upgraded parking Tot, pub1ic
access a~d restoration of fcrm~r Harbor Master's Cottage
Public Facilities with Site & Design Combining District
ENVIRONMENTAL IMPACT ASSESSMENT
A.n initial study which id€ntifies pot2ntial impacts and mitigation
measures and which recomm€nds adoption of a Mitigat€d Negati~e
Declaration is included in Jour packet.
DESCRIPTION
The project consists.of U.ree baSic. e1ements: 1) construction of a new
sailing station ir.corporatfng an upgr.aded parking lot, and' new public
atcess improvements 2) a two phase restoratfon of 11.2 ac~es of marsh at
Harbor Point, subject tn available funding~ and 3) renovation of the
former Harbo~ Master's Cottage.
ANALYSIS
A greater description and discussion of the project is provided in the
enc'~3ed P)anning Commission staff report dated February 8, 1991.
PLA~NlNG COMMISSION ACTION
At the PTanni.'lg Commission meeting of February 13, 1991, tr-,e Planning
Corrmiss.ion voted unanimously (5-0, 1 absent) to re-commend adoption: Qf a
negative declaration and approval of t~e project, subject to add;t~onal
conditions. The Planning Commlssion was in faver of the major design
eT~ents but requested the following cnanges to the pr~ject design:
The parking lot be surfaced with deco~posed granite or other
nonasphalt, perwiou5 surf.ace, fnstead af asphalt, and t~e patnways
be surfaced wit~ i pervious surface such as oyster shell or
decomposed granite similar to other Baylands pathwaY$, fnstead of
.. "halt.
A revision to the pier desfgn be constdered to eliminate the tight
turn at the bottom of the gangway and to orient the gangway
perpendi(ula~ to the float to accommodat~ users ~f rowing shells.
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The number, size and ~eight Df t~e ber=s s~rrDunding the parking lot
be red~ced to mai~ta;~ maximum views.
The coler of the rope betwee~ the bo1lards be gr~en or other more
natural color, instfad of yellow.
The portable toilets and changing areas ~e reloc~ted away from the
sailing station point to i less visible location.
The design and materials ~f the sailing station be provided i~
greater detail for thorQU9h review bl the Architectural Review
Board.
The proposed p1ant list be reevaluated as to the appropriateness of
the iisted materials for the Baylands setting.
The ab~ve requested changes were based on t~e Commiss;onis deSire to further
minimlze the physical and wisual impacts of the project and increase its
compatibility with the natural 8aylanos setting. The Commission felt the use
of the ~ore formal asphalt pav1n9 material for the patbways and parking lot
and the striping of the pariing lot were out of character with the area and
would detract from the existing Saylands views. The Commission considered
oyster s~ell or decomposed granite to be ~ore ~pprQpriate materials. Redesign
~f the sailing station was requested to incre.se opportuniti!s for USE by i
greater variety of boating enthusiasts, IS the original gangway design would
limit owners of rowing sculls from using the statlon due to thE tight turn
needed at lhe bottom Df the ramp, whereas i gangway orientated perpendic~lar
to the float wo~ld not pose a problem. The Commissian favored reducing tne
number and size of the berms around the parking lot to assure t~at views from
the parking area would b~ protected. The relocation of the portab1e toilets
and c~ang1ng area t~ an alternate location WIS requested because the proposed
location at the point near the sailing station increased it's visual
prominance a~d detratted from the panorimic 8a~ view. Additional design
details and 1nfo~ation about the type Ind color of sailing station materiaTs
were requested to better document the appearance of the sailing station.
Re·eviTuation of the plant list was requested because so~ Df the plant
materials were considered unsuitable for the 8ay1ands sfttlng. such is the
tOjon.
The Planning Commission differed in their views of the merits of retaining the
proposed hose~off station which would alTow boat uses to rinse mud off tneir
boats or vessels. On I motion to delete t~e hose~~ff area, the Commission was
split, and voted 3-3. As. ffnal co~nt, the Chairman of the Pl.nning
Conrnission sll9gested the use of benches wHh backs rathe-r than the backless
benches proposed.
Revisions to Plan
The prcject plans ~aye been revfsed to reflect these requested changes.
Specifically these include:
The parking lot will be surfaced with bas.cours. (bas. rook) and the
pathways will be surfaced with decomposed granite (DC) instead of
aspl\al ti
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The size and "\.Imber of bents will. b. mt.:ced, and the maximum height
of the be ..... wi 11 -be lot1fT'fd '0 18 inch •• h!g~ w1th • maximum of
I~-Inch-hlgh la"d,c.p!ng·~~~. bl~ •• t portions.
The gangway of the sail I", 'titian his been realigned to a1fgn kith
the pier and addition.' cOAltr~ctfon 4eta11s of the sailing statio~
have been provided,
The cable in the perfmeter btllar4s has been changed to grEen;
The portable toilet~ ~,""'I" tria are relocited to the
north~est c~rner of th. ~ "'IDt to better :7Iinimize their visual
impacts; . ,,','
The tenches are modified t. 1ncl~dt back supports; and
The plant list has bien ~"114 to Jncl~~1 only species wEll
to the Bajlands setting ..... ellrtfy tht Ireas eac~ spec;!
used.
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Sail Ing Station/Parking Lot/Public ~ _ •
One of the conditions of t~e Plannf, el..1sliDn called (or the parK1ng l~t to
be surfaced with decomposed gr~nit. ~) or some other non asphaltic. pervi~~s
surface ratner than asphalt f and Ils~. that the plthways be treated tne same
as some othe~ eXisting pathways in t~t .Iylands, whith Ire covered witn a
pen"ious surFace sllch as crushed oyster she11 Dr OG instead of asphalt.
Staff has disc~ssed th~ above fssue with eeoc's permit a~alyst. eeoc requires
that public access pat~wal imprQYelelts be hindfc~p accesslble and include a
low level of maintenance. Althoui~ IeDC'. f1rit choice is asp~alt. they will
accept de~omposed granite provided I~ accept.bl. le~tl of Maintenance is
performed and adhered to. In contr~st, they note that crushed oyster s~el1
pat~s do requ1re more maintenance th~ oth!r materials and approval of this
choice of materl11 is unlikely.
"llhen ~taff qUf!rie-d BCDC on the Jccephbl. choic. of surfa-ce mate-rhl for the
Pdrking lot, the same rational is Ip,lttd tG public iccess pathways is also
applied to parkio9 lots. This "'''n, thtt It wou1d appe.r tn.t the use of
decomposed granite or approved bl'IC.u~I' (BC) Is accept.b1e provided
sat;sfactor~ levels of r.aintenanct are c~lied wit~. The Public Works
Oepartroent wis~es to reiterite its l~. stinding po~i'y based on maintenance.
cost effectiveness and best prof.sstonal j~d~ntt .herein the best surface
material for areas subject to vehicle 8._ is .sphaltic concrete (AC) or black
top.
The plan' before you have been a...,e4 tt ,.fllet the "se of decooposed
granite for the pathways and baslcour,. 'or t~. Flrting lot.
Harbor Mas.ter's Cottlge t 1 ~
The City was successful in obtaining • reco.mtnd~tiDn for approval for I
S30.00~ grant from the Santa Clara County Heritage (08O;s.;on to .ssist ;,
funding the Harbor MJsttr's Cottlg~ renov~tion. Formal approval by the CountJ
Board or Supervisors is schedulod for •• rl1 March 1991. The City plans to
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reapply next fisc~l year for an additfon~l S20,OOO to obtiin remaining funds
needed to c~plett the project.
RWlMItENOA TI ON
Staff recommends that the ARB approve the Mitfgated Negative D~clariti~n
and recommends that t~E City Cour-cil approve the project subject to the
findin9s and conditions listed below:
f1HDINGS
1. The proJect ~ill not have any significant environmEntal impacts, in
t~at the marsh rest~ratiGn portiDn of the project is itself a
~ltigation of previous dredging act;Y'ties, and me~sures have been
incorporated into the project design to ~ir.jmize any adverse impacts
en area wiTd~ife, and ar~a recrfational opportunities.
2~ The p~oposed desi9n will be orderly, harm~"{cus and compatible ~ith
existing or potent~il uses of adj~injng property, fn that the
proposed use and fmpr~yements will be similar to other uses e~isting
in the area and wil] enhance existing wildlife habitat and
recreat;Qnal opportu"fties.
3. The project will maintain desirabtl it,. of ir,vestment in the same or
adja,ent areas. iR that the proposed inprovements. new pedestrfan
pathways. ~iewing stations, $aili~g station and parking lot upgrade
will enhance the use of i Y~luabTe community Gpen space resource.
preserve a historic 5truct~re in compliance wtt~ applicable building
codes a~d improve and protect the environmental qua1ity of the
Baylands marsh arei.
... The proposed design vi] l observe sound principles of environmental
design ind ~cologiil balance. in thct the excavation. grading and
replanting proposed fnr tne ~rsh portion of the project will retur~
the slte to its previous natural condition; and the public acc~ss
opportu"1ties ~ave been carefu11y designed to m1n;~;le impacts on
the surrounding bay and marshland, arPi wildlife, and bay ~iews.
S. The propos!d use ~ill ~ in accord with the Palo Alto C~mprehens;we
Plan~ and Baylands Mister ?lan, in that the proposed improvements
and recreational uses conform to the intent of the Cit~ Conservation
land desfgnat~on and Baylands Kaster PTan to preserve and enha~ce
the natural state of the la~d, ytt allow (ompatible recreational and
educational actiylti!s ind also comply with the iDtent of t~e
eayla~ds Master plan to develop an environmentally acceptable plan
for disposal of mud dredged froe the prevlous yacht harbor.
CONDITIONS
L All I'.itigation ll'lea3ure~ identified i~ the project's environmental
asse5S!.",nt (91-EIA-IJ shall be incorporoted into the project design
and construction. including:
iii. Dredge material shall be-retlOved frOtl Harbor Point to create
new marshland areas and result i~ I net ga;~ of 1] acres of
lIarshlind.
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b~ A ~arshland planting progr~ 'seeding of pickle weed and
cordgrass) shall b~ requir~d to assure a more rapid
e:;:tablishment of nit lv, plants in the re<;ttlred marsh area th-an
if the area was to bt reslo~ed txclus1vely thrDug~ natural
precesses.
c The design of t~e:. new sailing station shall include iI oised
pier and a platform for th. dock to encourage ~ildl;fe access
between ~undy Marsh. Ind Harbor Point lnd minimiz~ destruction
of bent~ic ~rgan;sms.
d. Construction activity shall be required to comply with the
City's Noise Ordinance, and the City;s Public Works Department
s~alj he responsiD1e for menitoring truck traffic levels, and
lS5uring pr~per majntenlnce of all eartn transport routes.
e. Removal of the existing bOlt nmp shall be: required to pro .... ide
a sufficient wildlife c~rr1dor betwetn tht new ~arsh at Harbor
Poiot and Mundy Marsh.
f. Construction of eirt~ b~rms and provision of planting snail be
required to minim;z~ visual impacts of the ~arking let.
2. Prior to issuance of il building permit and initiation of
construction~ all necessary approva1s frem all reqlJlatoryagenci'!!s
ha .... ing pi!rroit a'Uthority shall be obtained. Evidence of such
approvals shall be pro~ided to the Planning Departm~nt prior to
issuance of a building p~rmit.
3. Project compliance with all mitigation measures identified in the
environmental assessment (91~EJA.-iJ .and any further rnitigilti.ons
identified as conditions of any regulatory agen~y approvals shall be
monitored and enforced througncut the construction pr~ess by the
Public Works Department.
4. Prior to completion of bidding dcc~m.nts~ a detailed land~cape plan
and irrigation plan shall be submitted to th~ Planning Departm!nt
f~r review and approval. The final plan shall include the common
and botanical names of all species used ~nd the number, type.
location and spacing of III ~1ant materials. The final plan shall
also include details for III fur~iture proposed~ including benches,
bicycle racks. picnic tables, dr;nking fo~ntiinst waste receptacles.
toilet ar.d changing .aru.
S. All plans and specificatio~s for the project shall be subject to
re~ie\!l and approY'al -of tity staff prior to constucticn. Minor
modlfications to the project plans may be aide subject to the
approval of both the Planning Division and Public Works Department,
provided that such changes Ire r~und to be in substantial compliance
with the origi~al project deSign, will not increase the project's
environmental impacts or result in I substantial change iD project
casts.
6. Prior to widening of tn! ~arbor aCC!SS road in th! vicinity of the
1agoon culvert, the contractor will be required to provide a traffic
control plan, to be suhmitt!d for IpproYil to the City~s Public
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Works Department and TT~s,ort.tton Oiv1$ton. The traff1t CGntro'
plan w111 lfmit reld work ~o ... t4iy, 51 ~rder tg mfnimil~ traffic
imp;cts on the recreation lrt. d~'ing the we.kend.
1. An !d~r.itional Serf!5 of ·lnt,rpretive Signs· shall be deyelop~~ and
placed It the viewing st~tfons {bench locltfons) surrounding th!
parking lot and new marsh area. final dt51sn in~ location of such
signs snaIl be approvEd by the Arc~ittct"r.l Review Board prior to
insta11ation.
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