HomeMy WebLinkAbout0164.092~, , "., '> ..•.
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february 27. 1992
HONOR~BlE (lTV CO~NCll
P.IO Alto, talifornia
Alma Corridor (SOFA) Deve~cpment Concepts; (l} Planning Commission Public
Wor-k Session am~ (2) Ard,ite-ctuT11 Stu.den.ct'-"C"h"'.J-re .. t ... t"e'-___ _
Members of the COUl'ic.i1:
R-eQort in Brief
This is ~n infanmational staff report. No City Counci1 action is required.
The report identifies public meetings related to a Council-approved design
study for tne Alma Corridor. from Forest Avenlre to the 1 ast of the
comrnercial1Y·lQned parcels beyond Addison Street.
Background
Palo Alto previously hpld two design charettes in the mid 19805 where
ar,hitectura' students from tal Foly San Luis Obispo illustrat~d potential
development concepts fpr Downtown Piio Alto. These charettes generated
enthusiasm an~ a v~ry positive response frcm many segments of the community.
In addition, they prov1ded the genesis for concepts that were later rea1ized
in successful projects witMin Downtown Palo Alto. In acti~g on the proposal
for a 199~ charette. the City Counti1 appro~ed 3 process wnereby the Planning
CommisSion would preside oyer the public work session (s~e attached
September 19, 1991 memD to t~E Counci1 and excerpt of the September 23, 1991
Council minutes).
Alma Corridor Charett_~ ____ fo1'ee_t iligs
Two events ~ave been schedUled regarding development conc~pts for the Alma
C-o-r-ridor {SOfA) th:a.t respond to: the C~ty Ccv!'l':.l1 directive. Of September 2.3,
1991. The first event is a PTar.ning Commission public work session on
WEDHESOAY. ~RCH 18. 1992. at 1:30 P.M. IN THE CITY COUNCIL CONfERENCl ROOK
w~er! develQpment concepts for the Alma Corridor will be s~ggested and
discussed by property and business owners, nearby residents, developers, other
members of the public and the Planning Ccmmission. Subsequently. four or fi~e
altern&tive development concepts. defined at this public work session, ~ill be
ilTustrated by architectural students from Cal Poly San Luis Obispo in i
design charette. [If ide .. s on development cnncepts are i'1ot comp1etely defined
CMR: Hi4:92
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at this work sessiGn, discussion ~ou1d be cont;nued to the regular Planning
!.:orrmission meeting on March 25, 1'992.] This de:;ig!1 charette will extend over
the 'rIee:':'er.d b~t\ ... een April 3 a~d April 5, 1992.
Th~s second event will be an informal public meeting conclud1ng the charette
on SUNDAY AFTERNOON, APRIL 5, 1992 Ai I:oe PM IN ADJOINING STUDIOS A AND B AT
THE PALO ALTO CULTURAL CENTER. At this meetir9, the architectural studerots
will present illustrat'ons of design concepts for the Alma Corridor that" were
suggested at the earlier Planning Commission work session. The Cal Foly
design students wl1l begin their .... ·ork !In the charette in Palo AHo or. Friday
afternoon April 3, 1992 and ~ill CGntinuE prep~ring their illUstrations
through Sunday morning April S, 1992. Local developers and architects .. il~
provide guidance and assistance to the students durlng the ~eekend project.
Specia1 notification to the public on the Pianning Commi5sic~ public work
session and on t~e subsequent charette pre~entation will be made i~ order to
maximize participation fnlm all srgments of the cOrllmunity who are interested
in the future of the Alma Corridor.
Res~ectful1y submitted,
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/GEDRGE IJ%~ERMAN <
~jstant Pl~nn' 9 Official
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KENNETH R. SCHP-EIBER ;;
Director of Planning and
Community fn~ironment
Attachments: Memo from Council Members Cobb and Andersen of
September 19, 1991
Excerpt, Cit, Council minute~ of September 23, 1991
cc: Planning Commission
Arc~itectural Review Board
Urban Design Committee
Persons who attended South of Forest meeti~gs
James Baer
Warren Theits
CMR: 164: 92
p: \CMR \f.. llrll!r~
1/27/92
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DATE:
TO:
FROM:
"
September 19, 1991
Our Colleagues
fut' af Talo :Rtta
~ 0 60~ ,0:.50
.? ... ~o .... ~iC. CAll;':'~,"<I'" Ii ,},:,
(Dune;' Members Mike Cobb and Ron Andersen
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SUBJECT: A Possible Creative Approac~ to Encourage Progress i~ SOFA
As we conSlae~ the Planning Commission recommendations for SOFA, we wDuld like
the Council to also consider an approach designed to enc.ourage some creative
think.ing and idEa.s as to 'What can be done, ir'l t~e ccntext of our fini!l d'i:cislor,s
reiaUve to t:'ose recommEndations, to encourage positive progress in this area.
Our interest in seeking a more cre<lth'e approach ~a$ two motivations:
1, The SOfA .rea needs prosr€.~s. He Alma. Corridor l!i Hat area hs
been an eyesore for too long ..... e CiW€ it to our cOrm1unity and to the
neighborhood to do e¥eryth~ng 'We can to e~courage some constructive
progr!ss in this area as 500n as possible.
2. If development in the SOFA arei gets caught up in the same kind of
drawn-out pl>ocess as did the PAl'IF, we can ~redic:t that it \frj'ill be-a
long time bef(.Jr€. we see the ~ind of positive progress H.at is so
badly needed.
ihe appr~ac~ we arf suggesting is to ho1d a student charette in t~e Spring of
1992. (probably l.te April) for 51tes frontir'1g tr.e t.lma Corrjdor in the South of
Foresi:. cOTMlercia1 r:"..~,:,_ lue charEtte wouid enlist the talents of architectural
students from i: 'Northern California UTlillersity, and ,,"ould apply those talents to
deve10p and illustrate design concepts for th~ Alma Corridor based on ideas
submitted by developers, SOFA business owners and property owners, and members
of the pubi h:. The ch.aret".:.e wou1d be held outdoors on a weekend daj r,e:x:t spr'ing
in a festi¥e .tmosphere fo11owing a pattern similar to the two sLlCl.::essful
Downtown c.ha,rettes heTd in 1983 and 1984.
Thi So approach to see~ out the m{Jst (reat lve and" con.struct i ve ideas our communi ty
could offer for the SOFA Alma Corridor 'Would include the follo .... il'lg steps:
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Step 1:
Step 2:
Step 3:
Invite-local devl2'lopers, prcperty OiJiTlers, blJsin~ss people, and
neighbors .... 0 participate in 'Work. s~ssiorl disclJssicns--ci1iiired
by a Co •. meil Member--the thrust of which wOl!ld be t~: 1) set
out our o~eral1 qcals cs a cc~munjty (presumab1y. to achieve
s.ome progress); -2) dra'JI/ Ollt the opinions of all ir;ltErestea
parties in the communitj, esrecial1y local residents, tJtJsiness
people, and property owners; and J) set out whatever general
constraints are appropriate. Tl'1e conc1'jsion of the work
session would be . very sim;:;h--an encol!rage:;1ent to the
developers and ethers to come back. with ideas that make
political, pianrl;ng, and economic sense.
A second public work sessicn, also chaired by 3; Council
Member, would be held to discuss the ideas that f~arge from
Step 1. To the extent that there is a feeling that one or
more of the ideas might be considered further, thos2 ideas
would be the basi s for the concepts to be undertak~n by the
students for the charette. me ,purpose of the charette wouTd
be to help people \/lsual lze the cOr'1cepts that do (Me for .... '2rd.
The charette would be held in late Spring next year. O~er a
weekend, teams of studEnts wO:Jld work IJrlth pHticipating
developers (and others who hal,le suggi?sted idEas to be
consideredj, alld prepare (oncEptual il1ustrdtio!'s cf the
-ccncepts that emerged from th~ previous steps. The products
of the thiirette would be presented by the students and
re~iewed 1n an informal public meet~ng on a Sunday afternoon
followirlg (cmphtion of th€ stude-r,ts' work. Our hope is that
thes.e creati .... e illustrations would draw out reactions from
Council, the Commission, staff, and, wast ir,pDrt2nt, the
publ ic.
We want to stress that at no point in this proces.s is any formal action to be
taken, or any implled or express appro'w'a:l in~ol .... ed. This is Simply an attempt
tc seek creative ideas--withcLlt significant (ost to the participants 44 1!nd to
stimulate and gauge community reaction to those ideas. Hie cost to tho:-Citj to
f10st the dlarette is estimated to not excee,j S5,000. ,a., goad reac.ti{Jn might
provide a basis for so:neone coming forward--soor,er than might othenrisE be
e.<pecteCl--wiHl actio~able proposals that ~QgJg th~n ~ave into and through our
norm.a:l processes·-but, WE \IIoJJld hope. more quickly and efficier:tiy be:aJ,.;se we
would have: informally (but '.dth public ~artjcipatior.) sorted c~t many of t~e
issues in ad .... ance.
We will move t~at: 1) COUl"'cjl jnstruct staff tc::l plaT. and scnegl.;le the t....'D publ ic
work sessions and th~_-'Lroposed charette for the SOFA. AlmqmCorridor; ud 2J __ :tlli
Council continue consideration oJ_the Planning Corr,.r~ission lan:d U~_fL_~.r,d parking
strategies for SOFA until after the :::harettemnbJis been held (to give
Council! the (orrm;ssion. anC: the cOr')t'.unity the opportunity to see .... 'hat creatil,le
concepts might emerge from the proposed process).
cc: The Planning Commission
Persons who attended Soutn of forest meetings
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RE:PORTS OF COMMIT_TEE.S OND CQMMISSIQNS
7. Flanning
tions on
(211-01)
commission forwards to the City council recomm~r,;!21-
Issues and strategi~s for the South cf Forest (SOFA)
(elm: .21:91)
Planning Commissioner Bill Glazier said since the ?lanning
Commission and the City cour.cil discussed the South of Forest
Avenue (SOFA) issue abQ:ut a year ago, the ?lanning COm!I1ission held
three publ ic meetings at which a great deal of public input .. "as
received~ The Commi~'5ion discussed and debate':! the issuer and 'the
highest priority for everyone .. as the visual appearance of the
area. Some of tbe suggested strategies included completing ~:.d
implementing the Urban Design Plan, underqrounding the utilities in
the SOFA commercial area, and planting street trees follo ..... ing the
Urban Design Plan guidelines. While tbere ~as some concern about
accelerati~g the priority of the particular strategies in light of
the City's difficult economic circum~tances, the items needed to be
addressed in order to mcve forward in terms of visual appear.a:-:ce.
The second highest priority item "",'as the appropriate land use for
th~ area in the long term. After lengthy debate, the consensus ... as
for the auto $ervice b'..lsinesses to remain III indefini tely." In oI"der
to funda:wentally r.r;!.make the visual appearance of the area~
developers had to be provided with some incentives to change the
'Way the r.eighborhood look.ed, 'Which ultimately related to hig!1er
density. The COmJIlission discussed a mixed use approach, office and
residential, .for the Alma corridor, and a housing btlifer or
transition along Emerson Street. The staff report (CJo!".R:421:91)
indicated that in the long run, the objectives of maintaining the
auto service businesses and encouraging the transition to other
Uses might not necessacily be consistent. On balance, the
Commission favored maintaining the auto service businesses a.nd
requested policy guidance {room the Council.
Council Member Andersen asked about the impact of a higher den$ity
on rents for the auto service.
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Mr. Glazier said to the extent redevelopm~nt occurred, it would
likely result in more expensive ::ipacc. The only "'ay to €T"tcourage
landowners to make different land use decisions \W~s to provide
higher density options. It ~as a ditficult trade-off.
Mr. Schreiber said it \Was a difficult staff repo~t to write b~caU5e
staff was trying to ride two herses at Q~e time in t~o different
directions. To the extent that higher density zoning in the SOFA
area ,"'as introduced, it .... ou!d tend to remove the auto services over
ti;:oe. The policy reascn for higher density zoning .'uuld be to
encourage physical change in the area. To the e'){tent Coun>:il
leaned toward preserving the autc service: uses, for the areas
m~pped ifi the staff report (CMR:~21:~1) which were predominantly
auto services~ council needed to consider keeping what it had by
lowering the range of possibilities availacle under the zoning~
Retaining 'What -was there would not, however I go as far to'",ard
addressing the visual concerns as the policy of trying to encourage
change in the area. It ~as a difficult policy d~ci5ion to ~ake,
and Council's directicn regarding the emphasis to be plac~d on
retaining auto service uses ~as very important and needed to be
cl~ar. Council had the choice for both the frontage on Alma street
and the '~lma/High corridor, and distinct from those areas '-'"as
Elllerson Street because there 'Were some different iS5l,leS involved.
If Council .. "anted to retain auto service as its number one priority
and 'Wanted to send a clear message to existing auto services and
potential auto services 1 it 'Would need to lrIake s:Jnte zone text
changes to substantially limit other ~ses that could economically
or other.ise supplant the auto services.
council Member Cohh queried ~hether there ~ere any inconsistencies
bet."een holding a studer.t charrette and the progress of the SOFA
area.
Assistant Planning Official George Zi!ru:lerman believed the concept
of a student c'harrette was very consistE'nt with the Planning
Comrni~sion's recommendations acknowledging there was no one easy
solution given the different objectives for the area.
Council Me~ber Cobb said the nature of 'What he and council Merr~er
Andersen intended to propose involved delaying final consideration
of the SOFA matters until the charrette ",'as complete, and he
clarified that ~o~ld not be inconsistent ~ith the process.
Mr. Zimmerman said that was correct~
council Member Renzel queried ~hether staff expected the land use
aspects of SOFA would be folded into the comprehensive planning
process 'Which 'Would OCCur during the coming year.
Mr. Schreiber said the timing would he such that if Council wished
to have the charrette in the Spring of 1992, it ""ould not be
inconsistent with the Comprehensive Plan update schedule.
Alternath~ely, it could be pursued separately"
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cQuncil Member Renzel qu.e!"ied ""hetner consideration ..... as given to
simply having all non-auto related uses being condition3.l or
straight residential as opposed to the ~ixed office/residential in
order to guide the direction of the neighborhood should changes
occur~
Mr4 Zi~eTman said no specific direction ~as giver. nor was there
really that much discussion on having an all auto service or
conversely having an all residential ~one4
council Member Renzel said since the City did not have control over
the economic decisions of individual propertr Q ..... -ners except to the
extent it set land uses ~hich determined econcmics, it was up to
the City to determine what it wanted to se<:: and make sure its
enabling ordinances at least set a frame~ork for it to occur. For
example, whatever Council set fo= the zoning ~ould automatically
grandfather existing automotive uses and allow them to remain
indefinitely. If those uses terminated, the guidelines should also
indicate yhat the city wanted to see happen. The process needed to
allow those guidelines to occur, and she .hoped Council ...... ould
include some: suggested direction as part of its action in the
process.
Council Member McCown queried the percentage of auto service
bl.!sinesses in the Alma corrido!'.
Kr~ Schreiber said there were two different te~5 being used; A~ma
frontage and Alma corridor. The 1o.lma frontage was the area
referred to by council Members Andersen and cobb, and it contained
8 out of 22 sites. The Alma corridor basically included the land
from Alma St:t"eet back to High Street or even the half block beyond
High street, and that area contained as cuch as 12 to 14 out of 22~
Council Member McCown se.id just dealing -.. ith the Alma corridor
vould affect a great percent of the auto ser~ing uses in the area.
Hr. Schreit"'2-r said that was correct.
Council Member McCown asked about the time frame for how the
~lanning Commission's activities vould go forward if Council
adopted the package of Planning Commission's recommendations with
some direction on the auto serving uses.
Mr. Schreiber said in terms of the strategies related to changing
the CQ-S zone in the Alma area, staff would anticipate returning to
the Planning Commission in early 1992 with that information. The
Emerson street housing transition ... as a more complicated sl..lbjectl
and staff 'Would expect to return that issue to the Planning
Commission sometime in mid-to late 1992.
Council Member McCo'WTl queried 'Whether the Commission gave an~'
thought to a mini study committee approach or so~ething that ~ould
build off of the degree of community involvc~ent experienced ~ith
the initial strategies identified.
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commissioner Clazier said he had discussed the matter with members
of the Planning Commission as something that could be a positive
contribution to the process.
council Member Kniss queried how the area might change in appear
ance if the assurances were given tc the auto service businesses.
Mr. Schreib~r said several auto service business operators
indicated if they had some assurance troll!. the City that they were
there for the long ha~l, they would undertake upgrades. The City
"Was talking about over 20 sites, an-:i staff could not ans'I;.:er the
question either from a standpoint of understandillg auto bl..:siness
econom.ics in terms of lro'hat security "Was needed to make such an
investment and because most auto service business operators had not
participated in the public process whethe~ it be the Downto~ study
in 1985-86 cr the curre.nt process. Co~ncil Members Cobb and
Andersen suggested a process "Where "real ..,orld" developers 'Would be
asked to contribute their expertise. That was an extremely
important and an innovative part of the proposal because all too
often architectural students and planning staff operated outside
the realm of real economics, and ~hile the pictures might be good,
the implementation was difficult. The hope .... ·as that ..... ith "real
..,orld" developers involved in the pr:ocess, there ... auld also be SO!;1e
"real 'Wcrld" economic thinking. If several of the auto service
operato::-s loriere loriillir,g to parti.cipate in the process, one part of
the charrette could be to use some architectural students to ,,"'ork
with them in terms of ~hat types of upgrades they could make to
their properties.
Council Member Woolley said the staff report (CMR.:421:91) indicatej
one of the reasons the auto businesses had done nothing to upgrade
their buildings was that they ~ere in limbo and did not know what
the next council action ..... ould bring. She queried ..... hether Council
should be careful to not encourage or disco~rage auto businesses in
its motion.
Cou~cil Member Cobb said the suggested Planning co=mission
strategies \ro1ere broad, and Council's discussion should include ho .... ·
strongly it fe:t with re5pect to encouraging auto uses. What
returned to Council in terms of "~eal ~orldn proposals would help
de.termine what. specific strategies might be realistic to folIo .. ·•
Council Member Woolley clarified the intent was that Council would
take a specific position ..... ith regard to auto service businesses at
that meeting.
Council Member Cobb said the charrette ~ould not happen until next
spring so it would not change the level of uncertainty for auto
service business operators. Mor-e information "Would be added to the
process in the end which \ro1o~ld help everyone come to grips vith the
issue in the Spring of 1992.
Council Member Woolley sa id staff was requesting di.rection to go
ahead with permitted uses and parking deficit credits \ro1hich ..... ould
return to the Planning Commission in early 1992~ If council did
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not mC~/e "'-head 'With the staff's recom:mendation and Yaited \lntil
after the charrette~ she clarified staff .... ould hold back action.
Hr. Schreiber said yes,
council Members A.~dersen
the process, and staff
charre.tte.
The proposed
and Cobb would
..... ould rl:tur-n
charrette as suggested ty
ess~ntially put a pause in
to the issues after the
council Member Andersen referred to properties ~hich ~ere semi
constructed and f',ever complet-ed, and he queried ... hether other
communities had ordinance5 \o'hich requ.ired that after a certair.
peziod c,.f time the owr.ers \o,ere req-.Jired to dism<!ntle the semi
cons.tructed building and make the land into a field.
City Attorney Ariel Calonne was not a~are of any such ordinances
unles$ the property was a nui~ance or in a dangerous condition.
More typica~ ~0ulo be a require~ent to someho~ make the prope~ty
secure from trespass.
Mayor Sutorius queried .... hether the charrette and the resulting
pause in staff direction vould impact the timing of the Comprehen
sive Plan process.
Mr. Schreiber said holding a charrette .'ouid introduce about eight
:montbs of delay. riis sense was tha.t if council 'Nanted to pursue
land use changes after the charrette l staff ",'ould "'·ar.t to sct.edule
those land use changes SD tney fit vithin the comprehensive Flan
update although he could not predict where staff ~ould be in that
process in eight or nine ~onths.
Mike Morris. President, Don L. Morris ~uto Parts, 99& Alma Street,
represented his parents who owned the prDperty at 999 Alma Street.
Property owners involved in the automotive industry hesitated to
iroprove the physical appearance of their-p!'operty due to the
uncertainty of their fate 'Which arose in 1985 and 1986. If
automotive business o~ners kne .... they could I'!laintain their busi
nesses and that the r~sidents of the So:f}l~ area recogni zed the l':!eed
for autor!'.otive service, he bel ieved the I!laj ority of people
per-fonning automotive 5ervicE's in the SOFA area ...... ·ould be nore than.
~illin9 to spend some dollars to beau~ify their establishment~
Kurt Meller, Furt's Auto Service I 780 High Street, said alnost 50
percent of the automotiv€ repair businesses had left the downtown
Palo Alto area. The City had approached automotive repair uses
Over the years in a manner ~hicn clearly supported their leaving,
and the economic factors of what repair shops could afford to pay
as rental rates verSU$ office spaces also contributed~ He had no
problem doing what he: could ..... ithin reascnable workable ...,a1's to
upgrade th~ appearance of his building and the area he occupied~
The automotive industry had upgraded itself due to the technology
of automobiles; therefore, a cleaner facia was appropriate in the
1990's. It ",as no longer as dirty a job ·as it was at one time, and
it \lias appropriate for it to look that ...... ay.
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Chop Keenan, 100 E:r.erson Street, supported the proposed Jo..lrna Street
charrette~ There .. 'as a co-existence in the SOYA area 'itI'hlch ..... orked
Ci.lilong the commercial establishments. His office ... 'as in the area,
and there was a radiator shop zcross the street and a speedometer
shop next coor. The problem existed ~ith the residential inter
face. In orde~ to chang~ the look of Alna Street, there n~ed~d to
be Some inc~ntive in the zoninq~ othe~ise~ so~ethin9 ~o~ld alre3dy
be happening. The problems vith the Peninsula Creamery building
~ere not a function of zoning: it ~as a f~ncticn of two, three or
four propert~i owners sequentially paying too much money for the
prop€.rty, and he believed it w?uld be. a long time before the
Peninsula Creamery property had d. reality check: and sOl!'.ething nclo{
could occur. He did not believ·c the auto uses in the SaFA area
needed to be a protected class nor did they need to be under
constant attack or siege.. So marlY changes had occurred in the
downtown areal and it took a lot of effort to constantly be at city
Council meeting's trying to protect ~ne I 5 property froc whoever
wanted to cr-eate a ne'W vision.. He believed co-existence could
occur, and the market would sort out when socething should ~ove out
or not. There were, however, a lot of things which could occur to
encourage beautifj cation~ The SOFJ.+ area snmlld be set to ease, but
not through some sort of sunset provision. The a'Jto businesses
needed to know they wer-e okay, and if something else car:e along,
that 'Was okay.
Mayor s-utColrius queried the i~pact of an overpriced property s':=yir.;
on the market and th!2 signal it sent ir. ter:ms of the values of
othe:= properties in the area and vhetheI' it caused other properties
to pe withheld from the market.
Mr. Keenan said no. So~eone vould ultimately pay the price.
Patricia c .. Schmidt, 201 Homer Avenue, said she ~nd her husband
owned a lot of property in the SOFA area~ While the properties
they had on the rental market did not in.::lude automotive, the
automotive people had al ..... ays had a terrible time in the SOFA are,3-.
The City ;.ranted the bUsine5ses to improve their looks but did net
provide the incentives to do so~ She suggested cleaning up the
Peninsula Creaa:ery property .... ·ould !take everyone happier.. It '""as
the me55iest piece of property in the area and far :ness ier than any
of the automotive areas. The old creamery trucks had been sitting
for years, and she believed Palo Alto could figure out sot'.e 'Wa:t to
clean up some of the m~ss.
Ole Christensen, 80~ Alma street, owned Ole' 5 Car Shop on the
corner of Alma a~d Hower. He supported the recommendation for the
charrette, a~d offered his services to help put it together. He
thanked Chop Keenan for his beautiful developments over the years
and believed the auto business o~ners should take a lock at them
for their own businesses once long-term. plans ..... erE in place. He
had seen the auto service industry dissipate in the Palo Alto area.
The City needed 1:0 do 'What it could to help keep the re:ma ining
businesses in Palo Alto.
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Bob carmony, AA Radiator, B91 Emerson str~et, said in 1991 alone
six repair shops had left Palo Alto, and in 1993 nine more shops
would have to leave the Barron Pa.rk arez..
David Heinichen l Heinichen's Garage, Sl60 Hiqh street, said it ... ·as
impcrtant that Hr_ Kee.nan realized the diverse nature of the SOFA
community. The automotive businessEs ... 'eye under siege in Palo
Alto, and if the o~~ersl guards ~ere down, something could happen.
It was important fer Palo Alto to be able to service the 17,000
cars which were in Palo Alto daily. It was i!r.portant for the
automotive service uses to not have to ~orry about being "nailed"
in the back.
Mayer Sutor ius queried the percent of o-.mer-occupied automoti~Je
service businesses~
Mr. Heinichen said most of the businesses had triple-net leases.
council Member
possibility of
businesses.
Andersen queried Mr.
incr~asing density
Keenan's
and also
thoughts about the
losing automotive
Mr. Keenan believed the Alma street corridor might be a separate
subject from the rest of the SOFA area because it ... ·as so visible.
If Council 'Wanted ct.anges to occur on Alma Street, it \o,'ould happen
even without changing the zoning, and changes might not occur very
quickly even if Council did change the zoning. If Council changed
the floor area ratio (fAR) from 1:1 like the aownto~n areal he did
not believe new buildings ~ould ~e seen for a number of years. The
appearance of Alma Street needed to be addressed even if it was
just paint and flo~ers. Council needed to establish the density
and use, and the lr·arket needed to sort out the rest.
council Member McCown queried whether change on the Alma frontage
could only be accompl ished 1trith greater density.
M.r~ Keenan said no. Over a period of time he lJelieved the Alt'.a
f:t"ontage .... ould chang"! probably starting from the north and :movi .... r3'"
south. In his experience ne~t to the Whole Foods Market ~ith the
mini storage above and the service retail on t~e ground floor~ they
found the demand for retail in the area to :be very limited.
Dcwntown was still the focus of the retail, and ~bile there ~as
some evolution in the first block of Emerson with the brew pup and
a couple of restaurants and offices I it had not spread south the
way many thought it would. Change was evolutionary ... hether it l.ras
on Alma street or within the rest of the SOFA area.
KOTION: council Member Cobb moved, seconded by Levy, that Council
approve the Planning commission's recommended strateyies regarding
South of Forest Avenue (SOfA) area issues and direct staff to plan
and schedule the t~o public wor~ session5 and the proposed
charrette for the SOFA Alma corridor as outlined in Council
Members' Cobb and Mdersen IS It'.emo, dated september 19 I 1991, ..... ith
the exception that the Planning COmnli ssion ... ·ould take the lead in
chairing the public work sessions rather than a Council Memher~
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Council Memher cobb believed. the Plan:"! ing Com.rniss ion' 5 suggested
strategies ~ere ba~ical1y on target. His personal preference was
to retair. the automotive uses, and he did not believe that 'Was
inconsistent with a substantial upgrading of t.he A1Ir.,a ~cJTridDr.
The dilemI!la was the more intp.nsi fication was considered, t.h~ tt .. ore
it hastened a process ~hereby the automotiv~ uses would to some
degree move out faster rather than slo· .. er~ He opined it .... as cost
important to i1r.prove the gateway to Palo Al V.::. and to retain
automotive uses.
council Member Le\'y was satisfied ....,ith the Planning cor:'J:lission 1 s
priorities and believed the real focus needed to be the visual. He
agreed with Council Member Cobb regarding U-;E! dilemma and .;as
pleased to hear fro!!'. th-:. auto service people that their bUsiness
did lend itself in its modern ~ay to a better vis~al appearance.
For tJ:"..e next several years, the upgrade ","as doable, and 'ooIl'.ile
there ,",ould be turnover and char.ge, he was not concerned that the
auto service businesses would leave town at the sa~e ti~e.
Council ts comments should clEarly reflect its belief that the auto
service bU$inesses were of value to ~he co~~u~ity.
Council Membe:= Woolley clarified the motion did not intend for
staff to do any \riork on changing permitted uses or on parking
deficit credits until after the charrette ",as hE:ld~
Council Member Cobb said that .. 'as correr:t.
Council Membe= Woolley queried whether the intent ~as for staff to
also .tait before implementing the stree~ tree planting p:::-ograr.:.
Council Member Cobb said while that ""as not specifically discu$sed
with staff, he believed such a program ~ould also corne out of the
charrette 5in~e it was a visual kind of thing.
COUncil Member Woolley believed the charrette ~ould be executed by
architects rather than by landscape designers. Sfle believed staff
could go ahead .. "ith a street tree planting progra:-n.
Mr. Schreiber said staff did not see the need for outside re50:.lrC'=5
regarding the street tree planting program, and the intent was for
it to be a staff a~5ignment. If council was interested in sucb 6
program, it '"'QuId be appropriate to t~ke action on it that evening
in tne hope that something on it might be available in the 1992-94
budget process.
Council Me:rJ:ler Cobb said it staff did not believe a str"eet tree
planting program "Would get in the 'Way of a cnarrette , he would
include it in the motion.
Mayor sutorius said there seemed to be a street tree subject,
charrette, and completion of the, Urban Design Plan. Bot.h the
charrette and the Urban Design Pl~n considered pedestrian aspects
and the visualization and included landscape. Council should
consider the sequencing and whether it · ... as wasting time if it
called something out in the ~rong orde~.
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Mt'. Schreiber said t!1.e Ur:-ban Design Plan ,,",'as on its r.,.·ay to
completion r and staff expected to bring it t9 the Cc~~ission ~nd
the City Council before the end of the 199:i. calendar year. He
anticipated that .... hatever resulted from the Orban Design Plan
regarding the SOFA area 'Would be considered as input into the
charrette process and a~y final decision on that portion of the
Urban Design Plan ,,",ould be delayed until aft.er the char"!:'ette
process. If staff ~eceiveo an assignment to dzvelop a street tree
planting progral'O. and. it could be put together by the Sp!'"ing of
1992, it could a,lso be ir.put into the charrette process as · ... ell as
the b1.,ldqet process~
council Member Woolley requested the ~otion be divided for purposes
of voting~ While she agreed the problem 'With the Alma corr-ido:-.. -a.s
visual and the charrette might well provide the businesses in the
SOFA area with soma not too costly ideas to IDake their buildi~gs
more attractive, she would also like to move along on some of the
other ideas. She believed everyone wanted to retain the auto uses
in t11e C'lrea, and Council should go on record 'With it, so the O-'oImers
of those b1J.sinesses would not be in limbo anr longer in terms of
whether they were going to be phased out~ The big problem was the
visual blight primarily centered around tWIj corr,~rs, a:1d 'What got
the issue rooving w~s fear of ~n increased number of parking lots
and a business 'Which ~ould have too ~uch traffic in proportion to
wbat Council believed the neighborhood should have to bear~ sbe
wanted to s~e the City '.t·ork en the parking deficit credits and
believed that 'Would address the concern about a busir.ess "rhich
liould involve too many cars for the neighborhoc.d.
Council Member Kniss clarified th~ intent of a charrctte had to co
with improving the looks and not an extensive architectural revie-....
Mr~ Schreiber clarified the focus of a charrette could go in many
different directions, e.g., it could consider upgrading and
modifying .existing uses and buildings, "'hat could be done under
different t:~lpes of zoning I and upgrades with the existing zoning.
The charrette could be broadened to include a wide range clf
options~ The cnarrette was essentially a process w!-oere in a
'Weekend period groups of architectural 5tudents thre .. themselves
int,o trying to visually solve problems with design solutions~ The
products vere 5k~tches and dra~in9s on butcher type paper; they
'Were not refine·j architectural materials.
Cou~cil Member Kniss was concerned that having a street tree plan
before the .charrette might De having the lTeart before the horse."
Mr. Schreiber said having some· .. 'hat refined street tree infon:lation
prepared by city staff could help facilitate the cnarrette.
Every.:me agreed that the visual upgrade of the Alma corridor \"as
very important and one of the critical components of that 'Wculd be
to have a street tree planting prograro~
Council Member Kniss clarified· having a
program in place 'Would not impact the
charrette-.
9/23/91
street tree planti'lg
effectiveness of the
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Mr. Schreiber said that .... ·as corccct.
CO".J:1cil Me!D.l:ler Kniss, agreed with Council Member 'h~oolley in tern-,s of
having the. street tree plant ing progra::n in place as sc:.n as
possible and still conti.nuing ... ·ith the chdrrette.
Council Member Renzel believed the Planning COTI",::lission' s short-tenLI
priority issu~s of co-:nple.ting the Ur-nan Design Program, underground
utilities, and planting trees following the Urba~ Design guidelines
..... ere all things Council should do indep€:ndent of .... 'hether a
charrei:.te occurred. It t.ook time for tr.ees to gro".· and the sooner
they were planted the be~ter. Council should consider the long
term, land use issues in the context o! the Comprehensive Plan
becaU3e they interrelated highly with other land use iS5ues~ The
language in the Planning Commission's prier i ty of "a 11 0"'· auto
service businesses to remain indefinitely" sounded £'IS if it 'Were
wi thin council's pO·Jer to do so. She clarified Council ... ·as
empo~ered with land use decisions and setting the economic
frame ..... ork in 'Which individual oW'ners vould make deci si ons ",·i th
respect to their properties, :A sGbstantial number of the autOnlO
tive dealers indicated they ~ere leaSing the properties and their
precarious position W'as not bec.3.use of Council's actions. With
almost any of the other uses i.n the same zone. a r.igher FAR ... ·oL:ld
compete unfairly. There seemed to be a peaceful co-existence ~ith
the neighbors and automotive busin'3sses at the moment, and if
Council .... anted to ensure the City would have a place where those
uses could conti rme to funct.ion and 'Where it mad-e sense. to have
them, then it had to design the zoning to so",ehO'..' favor or not
compete ..... ith the!rL. It -.... '35 importar.:t the other long-tert:l land 'Use
items be considered of the context of the Co,,",prehensivc Fla". ~.
major change for the Palo Alto Medical Ioundation (PA..~F) in the
same area took residential uses out and SUbstituted medical
offices. Council would have obligations in that region for
housing, and it made a lot of sense to he looking at housing in the
ar2a exclusively and perhaps grandfathering in the automotive uses.
In one sense the Alma corridor asked for more density; at the sa:ne
time it asked for less density. It '.-as not an easy place for
automobile access to its adjoining properties. There .rould be a
lot of "rtar-enders" ""ith high density activity trying to get into
parking garages or making right or left turns into ~usinesses along
the area. It was Worthwhile to look at the r.atter in the everall
context of what the entire area IrIight look like .... 'hen eVerything
happened that was on the zoning ~ap~ Cou~cil should continue to
encourage automotive uses; she ~as not sure it should be by ~ay of
the service commercial zone. There could be a need for so;:e
specialized zoning. The charrette should not substitute for the
City's comprehensive planning processes. It would be interesting
to find out how many of the ideas \oihil:;h caroe out of the earlier
charrettes were actually incor-porated in the downto .. r. area or
whether it ~as just a fun exercise in 3rchitectural brainstorming.
Council Member McCown believed the Planning corrunis:sion had proposed
an ope.n-ended and flex.ible set of strategies. While many of" the
strategies only spoke to considering other land Use possibilities,
e.g .• higher density, mixed use, etc., and conSidering land t:se
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transitions for ~here housing interacted with the commercial area,
no one knew 'Where the community, the Planning commission, or the
Council vould strike the balance that on one ha~~ maintained and
encouraqed auto serving uses and on the other hand allowed for
~vclutionary change that wO'..lld upgrade the entire area. The goal
was to allow the auto uses to stay as long as they could, and if
any individual property owner reached a point where he/she wanted
to pursue a use o~her than ~n auto serving, the Council would have
some guidance in terms ~f the direction the chang~ should go but
would not be requiring that ~uch a change be made. It could be
that the Commission ~ould ultimately recommend the zonin9 reruain
~hat it ~as. She wanted to see the Planning commission strategies
adopted .by the Council 'W'ithout qualification. The idea of the
charrette was simply one tool among all the traditional tools used
to generate soroe good thinking at an early part of the process~
She wanted the process to move forward ~ith a strong signal to the
community of the goals from the Council's point of vieT,{ and the
impcrtant goal about preserving the uses already in the neigr~or
ho<Xl.
council Member Andersen said ""hile he really W'anted to see some
visual improvemsnt in the short term, he was a .... are of the long-term
zoning issues 'Which needed to be considered. He agreed ~ith the
evolutionary pr-ocess but believed it \oTould be ertraordinarilj'
impacted ",ri th poss ible zoning changes. He hoped those in the auto
service industry understood the Council's desire to retain trIose
businesses and that there was not an attempt to drive them out. He
urged the business owners to improve the appearance of the
propertj~.
AKENDXENT,
plan and
charrette
Council Member Ccbb moved that staff be directed to
schedule the t~o public 'Work sessions and proposed
for the SOFA/Alma corridor.
AXENI>XEN'r INCORPORATED INTO ""IN KOTlON BY KAI<!:R AND SECONDER
Council Member Cobb said the intent 'Was to encourage as t".uch
cz.-eativity as possible in the process, and !1e wantE.d to se:"d a
clear signal that those who participat-=d needed to be cn:ative.
While the charrette ~ould illu&trate the conceptual ideas,
encouraging people like Mr. Keenan and others in the business,
property owners, and people who lived in the neighborhood to come
for.ard ~ith ideas that could be illustrated in the process and
made some political planning and economic sense, was ve~' impor
tant. An open process where people could be more creatiVe vould
generate excitement to get the process through the system expedi
tiously. He did not ~ant to see the process dragged out for five
years. If the community af'.d the developers could be encouraged to
participate early on, then possibly the entrance to Palo Alto
would look like something sooner. He believed the process was an
opportunity for the City to be creative and avoid some of the
procedural -log jams'" ",'hich got in the ",·ay of the PAMF process~ He
stressed the process was i~formal and designed to bring all the
affected parties together.
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council Member Andel:-sen endorsed council Member Cobb's cO!!'l..c'nents and
was anxious t", send a message that automotive repair businesses t.ad
a purpose, and as O!"le representative indicate1j, t~ley kept the cars
running clean.
council Member Renz.el ..... as concerned having a c:harretta, ,;,.hich 'WaS
an unofficial extra-Chart~r planning process, at the same ti~e the
City i."as having its Charter mandated COl'lprehensive Plan review
process at which she ... ·ould expect the same parties to participate,
might be conf-I.4sing to members of the public, property owners,
lessees, and all of the parties concerned. Existing zoning in the
area allowed an enormous number of permi tted uses, and to the
extent property o ... ~ers exercised the permitted uses, it restri~ted
t.~e City I s pI an.'1ing options .... ith respect to the area. It ""as
important to move forward ~ith basic planning for the area as well
as the entire co~prehensive Plan revision.
Council Kember Woolley clarified on page 5 of the staff repc;·";.
(CMR: 421: 91) and queried 'Whether staff ir:otended to move fon.·ard
with returning to the Planning Commission ~ith proposed changes to
zoning regulations on CD-S permitted uses and on parking defie:it
credits if ~,e motion passed.
MI. Schreiber said staff intended to move ahe~d and return to the
Planning Commission with those items as specified in the staff
report (CMR:421:91) unless Council directed staff to move slower.
The Planning Commission might .... ,jant to defer action until after the
charrette occurred.
Council Me1I'.Der Woolley clarified the Planning co~ission .. 'auld have
a free reign and ~ould not be considered by Council if it nee~ed to
defer 50me~~ing because council said so. If the Planning Commis
sion had the need to defer something, it yauld be a different
matter.
Mr. Schreiber said the"Planning COillIllission " ... ould r.ortlally r.a-.'e that
discretion.
Council Member Kniss bel ieved COllnci 1 Me:::her r..ar',Z el r S car...r.'.ents .. ere
'Well taken and that the SOFA area ..... as different from the do.nto .. :n
scenario. She had not seerl a charrette program before and believed
it would be particularly interesting as it dealt "'ith automotive
businesses. She supported the charrett..;:, ... as very a .... are of Council
Member Renzel's message, and would keep it in mind.
Council Member McCown referred to the ct-~arrette approach and S~ id
she differed ..... ith Council Members Cobb and Andersen in that she
believed the work sessions should be presided over in the info~al
context by representatives of the Planning Commission in order to
have it better integrated and coordinated ~ith w~at the Planning
Commission would be reviewing first.
AKENDNENT: council Member McCown !!'loved to have the Plar.nir.'-1
cotr.mission preside ove.r the inforIllal ;,,;ork sessions.
9/23/91 67-215
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Mayor sutorius said in his 11 years of service on ~he Architectural
Review Board {ARB), Planning Commission, and city covnci 1_ he
experienced the impact of ~onin9 decisions ma.de marlY years earlier
in the £1 cam:ino Real south of paqe Mill Road area. A lot of
effort went into the program proce!:.ses, community involvement, etc.
He believed it continued tc be a cifficult and frustrating thing to
deal with. The organized approach at the ou~~et, e.g., the steps
and pri~rities identified , yere importa~t. He agreed the Compre
hensive Plan process should be \),t.ilized and not be th ..... arted by some
substitute processas a."d did not believe the charrette concept
thwarted the process. The charrette p!'"ocess d.iscussion 'io'as bl:l"..m
out of proportion because he imagined it wa$ being visualized as
ha.ving a final product complete with elevations t.hat could
practically be brought to a council meetinq for approval ~ The
charrette could have students ~ork in teams of two under specific
quidelines~ Several teams could be assiqned to the same geographic
area ~ith a different set of guidelines. For e~ample, on Al~a, one
team could be told of a future need tor 96 trains to go through
Palo Alto daily and the need tor more pu~lic transit use and for
both sides of the tracks and the existing developed side of .Alma.
The assign.ment ,",auld be to figure out 'What. would .. 'o!'k ar.d portray
it. Another team could be assigned the exact same area and given
a quideline of high density housing; a third team cO'.lld be given a
guiceline that might be something closer to ~hat was discussed in
soroe of the exploratory stages~ It was an opportunity to focus on
more than one idea for development ~nd evaluation. The same could
be happening in poz.tions of the interior of the SOFA area with
differeont ideas being explored. The important thing was for
Council to take action that ever':ng which allowed for SOQe of the
visual improvement aims to be in progress. He supported the. way
the ~otion was presently constructed, e.q., all the things
contai~ed in the staff report (CMR:421:91) in teUi'.s of 'Planning
Commission recommendations including considering parking deficits,
et;:. I .. ere part of the 'motion and t.hat council was not continuing
to a later time brir,ging tt.os'!:! .along.
Council Member Andersen war.ted to expa!1d the Planning comz::lssion's
scope 'With regard to zoning regulations if it seel!led appropriat.e to
reconsider ways in .... hich the City could give some protection to
automotive uses. He referred to page 5 of the staff report
{CMR:421:91) as it referred to the CD-S zoning regulations. The
list on pages 6 and 7 of the staff report (CMR:489:0) ceferrea to
CD-S and CD-N zones, and he encouraged the Planning Commission be
given some latitude if it "Would be more appropriate and not be:
limited to what was in the report~
Mr~ ZimmerIDan clarified Council Member Andersen hoped the Planning
couunission 'Would look at some more extensive ways to retaill au.to
services in the SOFA area.
Mr. Schreiber heard the message frolt: a majority of the Council
Members that the retention of auto service businesses in the SOFA
area was a high priority" staff 'Would be looking at modifications
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to the CD-S ZO!lP.. • .. i thin that context. There · .... ere t ..... o horses anu a
sense of the:n, going in two different directions. The message he
heard 'Was a high priority to retain auto SEndee uses.
council Member Renzel said her preference Yas to not be 'Wedded to
the CS .zone at a} 1. Tr..e hig!'. priority • .-(!s to preserve SOIDe auto
service uses in the COIl\lr ... ln_~ ty. There 'Were not many places for
them, and they ,",ere needed. She hoped the issue .. 'as open and that
the planning process cOl..J.ld resul tin some .... 'ay, ether than a cS
zone, to protect those uses.
AMENDKENT: Council Member Renzel mov-ed, seconded by Andersen, that
the process be open as the Planning c01!rnlission moved for •• ;ard with
the Comprehensive Pla~ with t~e idea to prote~t auto service uses
but possibly with zoning other than CS.
Mr. Schreiper queried whether the reference to the CD-S zone was a
reference to resulations or geographic area currently zoned CD-S.
council Member Renzel said her motion ·,.."as -.'ith respect to the SOFA
area because if the CD-S regLllaticns ,"'ere changed, the changes
\o.'Culd apply to CD-S wherever it occurred. She did rIot object to
consideration being given to rezDning the entire area 'With sot!'.e
residential zone with grand fathering Df automDtive uses~ floor area
ratios, and everything else designed such that in the eve!"lt the
automotive uses left, the City ..... ould see something ;;hich con
tributed positively to it and its various problems. She did not
.feel a need to be "'"edded to the CO-S zone, and it might .. "ell be
part of the problem of the ~lma Street corridor. The area was a
little lik~ the old fire zone one l e.g., lando~wnerst expectations
created paralysis; they did not ...... ish to move because. they al .... "a.1's
thought they could get more dollars if they waited. Until the ~ity
made a clear picture of 'What it wanted, there would continue to be
speCUlative paral~{5is 'Which seem'=!d to ~e affecting the area.
council Member McCowm did not believe the amendment 'Was necessary.
The Planning commission Dlade its recomr.endaticDs of strategies it
bel ieved .. 'ere appropriate for p1.;rsui t. I f the co:::unission in the
course of its review detern:ined changes to the CS zone .... "ere !'lot the
right way to go, it would be made to the Council.
AMENDMENT FAILED 2-6, Renzel l Andersen "aye," Fazzino absent"
MOTION PASSED 8-0, Fazzino absent.
KOTION:
staff be
SOFA.
Council Member Woolley moved~ seconded by Kniss, that
directed to prepare a street tree planting program for
MOTION PASSED 8-0, Fazzino absent.
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