HomeMy WebLinkAbout0161.093--_.--....... ',-..'.-.. ~"'.--..
February 11, 1993
HONORABLE CITV CO~NCll
Palo ~1to. Califorr.;'
84) Alma Street. long ~ap Amendm€nt from CD-$(P) to PF
Members of the Council:
Report in Brief
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This project consists of an amendment to the Palo Alto Zone M~ to change the
zoning "of. City-owned parcel at 641 Alma Sireet from LD-S(P) (Commerci.,
~o""town Servi co SubdHtrict with. Pedestrian Overlay) to PF (Publ ic Focil it ies)
to facilitilte the future e)(panSiCin of the aajacent Alma Street Electric
Substation. The City intends to demolish the exfstir.g 3.750-squaie-foot building
tD expand and convert tne e~isting substation frum 4kY to 12k~ operation to meet
the d~nds of t~e Downtown power users. Additionally, the rezoning would al1~w
the Util ities and Publ ic Work. "epartments to util ize the property for temporary
storage of materials used for maintenance and repair of the City's
infrastructure. A more detailed discussion of the proje,· history and analysis
of issues is contained in the attached Planning (ormrfssion staff report dated
January 8, ]993.
Phnning COlTlTlisslon Action
On January 13, 1993, th€ Planning (orM1;ssion lIoted unanimously, 6-0-0-] (Marsh
absent}~ to T€corrmend approval of the proposed Zone Map amendme1Jt fer 841 Alma
street. Tre Commission also unanirn~usl1 approved a se,ond motion. recomm€nd~ng
that the Council direct the Architectura1 Re~iew Board to require a so1id des;9~
for the temporary fence, which win be constructed after demolition of the
automotive sl!rvit.e bui1dlng. Council direction will be forwarded to the
Architectural Review Board. ~hen pl~ns for the fence design are submitted for
review and approvai.
1. The Zone MiP amendment ;s in the public 1nterest and is required for the
health, safety and general welfar~ of the community in that the zoning of
the propert1 is consistent with th~ majority of City owned land f faCilitates the upgrade and expansion of the Alma Street Substation which
provides electrical power to Downtown utility consumers, and prollides
storage area for Downto\llri infrastructure improvements.
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2. Thfs prDject ~ill ~ot ha\'e a significant impact on the e~~ironme~t i~ that
the use of the site will be subject to separate eovir'"onmental and
archttectural r~'f'ie'N.
RecolTlTlendatioo
Based on Utii!' findings above, the Phnning C.orm.iss-1on recorrmends that the City
Council adopt the Negative Declaration. approlle the-attached ordinance, and
direct the Archihctural Re\l~e __ Board to t'eQui reo a sol id fence design for the
temporary fence to be c~nstructed along the souther~ portion of tne site's Alma
Street frontage.
R.speotfully submitted,
,// '_ I / 'r,. __ -//-~, A./",/
IU-;,"t.'.-.;.£.V,: /1 -"Vt.--f"~0./,"
KENNETH R. SCHREIBER /'"
Oi,~cl9r of Plann;~9 and
Community Environment
Attachn.ents: P1 anning Conrni ssion Staff ~eport dated 1/8/93
cc: Dena Massar. 1024 Emerson Street, P=To .~lto. CA 94301
CMR:161:93 1/11/93
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') Citr of 1'010 )lIto
DATE: Janu,ry B, 19~3
TO: P~.lO ALTO PLANNING COMMISSION
PREPARED BY: ~ancy Haddox lytle
REPORT IN SRIEF: 841 AlKA STR,ET, Application for a Zone Map amendment
from CO-S(P) {Comnercta1 Do~town Service S~b~istrict with a P~destrian
ov~rl~yJ to PF (Public fac11itits) to facilitate the future f~pansion of
tne adjacent Alma Street Elect"rlc Substation.
EnvifoDmtntal Assessment: No significant environmental impacts ~ef~
determined to resu1t from the requssted action and a Negative Oeclar~tion
~as been prepared. Environmer.t~l Assessment 92-EIA 45 is attached to this
report.
Zone District: CO-5(1'")
File Nos.: 92-ZC-20, 9Z-E1A-4S
APPLICATION INFORMATION
Applicant: C it,y of Palo A ito, Lit 11 it i es Department
250 Hamilton Avenue
P.lo Alto, CA 94301
(4IS) 319-2365
Tlpe of ApplIcation: Zone Map Amendment
srTr INfQ~T[QN
OWner: City of Pa10 Alto
250 Hamilton Avenue
Palo Alto, CA 94301
Assessor's Paree1 Number; 120-28-47
Comprenensive Plan Designation: Service Commercial
Exist Ing Land Us.: Vacant Auto Service Bui 1 ding
Surrounding land Use:
[xi sting Zoning;
Parcel Size~
P;\PCSlt'-" 1 Alma ,pc
Nortn:
[as.t:
Soutn:
West:
CD-S(P)
Creamery
Office
Railroad, Urban Lane beyond
Auto SeT\! i ce
5,250 square feet
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PROJECT INFORMATION
PrQj~ct ~istory:
In ]965, the City purchased the 841 Alma Street property and merged it with
the-,A.1.m" Str-eet Electric 5lJ.b~tati()n site to facilitatp. expansion of the
substation to meet increasing 1emand for electrical power in the Downtown
area. T~e result is a site ~ith ~plit zoning of PF on the portion
containing the substation and' COlTll1et'cial zoning on the B41 Alma Street
site. Currently. the site contains a 3,750-square--foot automotivE serllice
buildint' and 4 parking spac.es at the rear. Pre· .... iouSly, the City 'eased
tnis space to provide ~ncome to the General F~nd. but it is currently
\lacant.
Through the 1992-97 Capita1 Improvement Program (tIP). th~ City identified
the need to complete the expansion and upgrades to the current facil:ty in
order tc provide adequate service to customers. According to the 1992-97
CIP, remo~aT of ~xisting equipment .i'l begin in 1993-94 and the new
sUbstation will be constructed in 1995-96. -
project Oescriptjon:
This project consists of Gn amend:nent to the Pa10 Alto Zone Map to change
the lorling at 841 Alma Street from CD-S{P) to ?F to heil Hate the future
expansion of the adjacent Alma Street Electric Substatio~. The Cit),
intends to de~lis~ the e~ist'n; 3,750-square-foot building to expand and
convert the existing substation from 4kV to J2(V operation to meet the
demands of the Downtown po~r users. Additionally. the rezoning w~uld
allow the Utilities and Public Works Departments to utilize the property
for temporary storage of materials used for maintenance and repair of the
City's infrastructure.
Zoning and land Use Consistency: The pr~po~~d Zone Map amendment is
necessary to ensure consi.stenc), with other City-owned propert)' and
facilities. The PF lone district is d'~sign~d t-Q accorrrnodate go\'ernmental,
pu:bli.i:: utility) educatior.al. and com,unit)' service or r€creati.anal
. facilities. Th:s action is necessary to facilitate thl: expa.nsion of Ue
Alma. Street f1eetric Substaticm and provide storage space for construction
cf infrastructure improvemEnts iM the Downtown.
ANAlVSIS/iSSUES
Electric power Ser" .. ice: The new substation will result 111 increased'
re1iabilit)' in electrical serv1ce to Downtcwn customers. The e~uipment at
the existing substation was ir.stalled in the 1950's, and has a life
expectancy of approximatel.::; 40 years of senice_ me new equipment will
require less maintenance and is expected to prJvide ser~ice to the Downtown
area for the next 30 to 40 years. The rezoning of the property and future
constiuctfon of the new substation will not increase the potential
development in the Downtown area. Deve10pment potential is regu1ated by
the Zoning Ordinance and will not be affected by this action.
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Electri~nd Magn~tic fields: The existing aTeclrical pow~r ~ubstatfon and
overhead arid lmdergruund POW\2f distri but; on 1; nes create magnet ic fi e1 ds.
Ar.y ele,t~1c pow2r conductor carrying electric current produces a magnetfc
fieid. Tr.e strength ~f the field is proportionil tc t~e magnitude of tne
current, tfle distante from the source, and the type of de""",ce producing the
f;eld.
The 60,000 Volt 5ubtransmls~ic~ rines, k~ich bTtng bulk power to the step
down transfonmers in the substation~ produce a magnetic field alon9 their
path. Two such 1inps currently connect to the Alma Stlbstation. One line
ru;,s through Ue ailey at the rear of the site to l~ncotn, Emerson ind
Embarcadero Road, and tne other crosses Alma contlnuing to t~e Qijarry ~oad
Substation ne~r Stanford Shopping Center. No dange in the f;~ld strengths
or their locations will result fro~ the expansion of the A1ma Substation.
Tne electric current required to deliver powe~ at 4,160 volts to the
existing substation is three times the current required for the proposed
12~.70 volt operating lev~l. The proposed co~varsian from 4k~ to I2kV
operation will reduce the e1ectric current required to deliver p~pr to the
surrounding area, ther!fora reducing the magnetic fields produced by the
current. Additionaily, the 4kV overhead lines, which produce a large
magnetic fteld, will be eliminated. The conversion to 12kY wiil enable the
Utilities Department to IJtiltze underground power lilles, which te-nd to
cancel out magnetic fields due to their dose prOXimity to one another~
There is no consensus r!garding the health ef~!cts of ~9netic f1~lds.
Alto, there are no widely acc~pted stand~rds for Electrit and ~agnetlc
Field (EMf] levels. The only standards currently beinQ considered relate
to high·yoltage (115,000 Volts and above) transmission lines for moving
bulk power. Tnese standards do ~Qt apply to subtransmission or
distributfon lines.
~: The future expansion and conversion of t~e existing 4kV to i 12kV
subshtTon will result in a slignt increase in n\lise produced ~y the
substation. Hew transfo~rs will be located approximately 30 feet from
th~ property line at Alma Street. Noise fr~m transfo~rs is a ~uiet hu~
at aT1 times. The noise produced by th~ transfo0mer is well below t~e
normal nOise fr.om traffic on Alma Street. The 10c11 ambient was determined
to be 45 dSA. The n!w substatlon will produce 56 dBA at the property line
adjacef;t to Alma Stre!t. This noise level complies with tne pro'olisions. of
the Noise Ordinance which restricts. noise levels produced .on public
property to 15 dBA above the 10cal ambient. Any increase in the ncise
levels produced by the substation will be offset by an i~ousticil wall
constructed along the Alma Street property line. The design of such a wall
would be subject to review and approval by the Architectural Re'oliew Soard
(ARB) •
Aesthetics: rn pr-eparation for the proposed ex-pansion of the substation,
the existing 3,750-square-foot building wi1l be demolished and i wooden
fence, similar to the existing fence at the north end of the property, win
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be erected along the A1ma st~eet prop~rty 1ine. At the t~~€ of
construction of the n~w substation, I more aesthetic bdrri2r will be
constr~cted to screen as much of the substatio~ as possible ~;thin saf€ty
clearance requirements for high-.... oltage electrical substations. The dESigf1
:>f the screen wi 11 he re\lfewed and appro\led by the ARB and shall ccnsid-er
tne recoomer.:datlor.s of the Downtown Urban Design Plan" Construction of a
new screen at the Alma Stre~t frontage, ilong with undergrounding of
transmission lines, will lessen the visual impact cf the these facilities
and ennance the appearance of the South of For~st Area.
Storage: Rezoninq the property to PF would pro'iide·an irea for temporary
storage of mater-ials that are used to maintain and improve the City's
infrastructure. Public improvement projects such as sewer li~e
replacement, storm sewer repair, gas main replacement and othl!rs T"equire
material storage in closa proximity to construction sitES.
In the Downtown area there ~r~ few oppo~tunities to store such materials on
City-owned pr~perty, causing t~e Utilities and Public Works Oepart~nts to
pursue storage ~n private property. This has drawbac~s s~nce storage on
pri~ate property is s~bject to the issuance of a t€mporary use permit ~hich
is valid for a maximum a' 45 days, a fraction of th~ actual construction
time for these projects. Addjtionally, these properties tend to be single
family lots located next to other residential properties that are greatly
impacted by the storage. The subject site would supply ample area, and,
because of its-location w1thlrt a cOllJllercial district, 'Would not have a
significant im~act on adjacent properties.
COMPREHENSIVE pLAN COMPLIANCE
This project is consistent with Policy 5 and Program 12 of t~e
En~ironme"tal Resources Element locate~ o~ page 54 of th~ Palo Alto
Co.prehensive Plan. Policy 5 states: -ensure Palo Altols long-term supply
of electricity, ~atura' gas and water, and long-term disp~sa' of so11d
waste in an environmenhl1y sou!ld way at the 1o\triest possible cost.-
RECOJot1ENDAT' C~
Based O~ the findings b~low, staff recommends that the PTanning Commission
rec~mmend t~at the (ity CounCil adopt the Negative Declaratior, and approve
the attached Ordinance.
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FiNQINGS
I. The Z~r.e Map amendment is in the public interest a~d is required (or
the huH", safety and ;eneral welfare of the cOlmlunity ir. that He
zoning of the property is cOTlststent wah the majority of t:ity·o,,;r.ed
land, facilitates tne upgrade and expansion of the ~1ma Street
Substation wt}icr. pro'Jides electrical power to Downtown util ity
consumers. and provides stera;e area for DowntQwn infrastructure
iIl!PTO~ements.
T~is pflJject will not have a s19nific:ant impi.ct on the envfronment, in
t~at th! use of the site ~il1 be subject to s~parate environmental
and architectural review.
Attachments:
Ordinanci!'
Location Ha.p
Applfcantls Project Description nA
Copies Sent To:
Mike Beinland, Uti1itios
Bill Fe11 •• n, Real Estate Di.islon
Public Works Engineering
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ORDINANCE /;0._
ORDINANCE OF THE COUNCIL OF THE CIT'{ (IF PALO ALTO
~TnNG SECTION 18.08.040 OF THE PALO ALTO
:MUNICI}lAL <.."OD8 (THE ZONING MAP) TO C!{A},'GE THE
CLASSIFICP.TION OF PROPEJ.'.TY KNOW1\,' AS 841 Al.J.".A.
STREET FROM CD·S(P) TO FF
WHEREAS. tne Planning COmmission, after duly noticed public
hearing held January 13~ ~99J. has recomrnended that section
18. OS. 040 [the Zoning Map] of the Palo A1 to M'"micipal Code be
amended as hereinafter set forth; and
WHERBAS j the City Council~ after due considera~ion of the
recommendation, finds that the propcse~ arr~ndment is in the public int~rest and will promote the public h~alth. safety and welfare.
NOW, THEREFORE~ the Council of the City of Palo ~to does ORDAIN as follows:
SECTION 1. Section.18. 08.040 of the-;;alo Alto Municipal
COOe, the "Zoning Map". is hereby arnended by changing the Eoni.c.g of
certain property known as S4~ Alma Street, {the "subject property")
from "CD-S(P) "Commercial Downtown {Service) Pedestrian Combining d
to dFF Public Facilities d • The subject property is shown on th~
map labeled Exhibit iliAd. attached hereto and incc!:'porated herein by reference.
SECTION 2. The Co~~cil finds that this project will not
have a significant environmental effect.
SECT!QN 3. This ordinance shall be effective on the
thirty-first day after the date o~ its adoption.
Th'TRODUCED :
PASSED:
AYES:
NOES:
ABSTENTIONS:
ABSENT:
ATTEST:
City Clerk
APPROVED AS 1'0 FORM:
Senior Asst. City Attorney
9301(l>~c OO~
APPROVED:
Mayor
City Manaser
Directo-::-of Planning and
Commu:-~_ ty Environment
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APPLICATION 'FOR ZONE CRA.NGE
A~d~ess: 8~1 ALMA STREET
Existin~ zoning: CO-S(P)
Desire~ Zoning: PF
The property at &41 Alma street is adjacent to the City's ~lma
Substation. The Alma Substation has the smalle_st site area of
any of the: City's electric substations and serves t;"e entire
downtown area. The Utilities Department anticipated that load
growth in downtown Palo Alto would require,an expansion of the
substation. In 1965, the. City acquired the 50-foot by lOS-foot
lot at 841 Alma for the purpose of the future expansion of the
.\.lma Subst3.tion~ The sepal:'ate parcel s w-e-re merged at that time,
ho~ev~r, the zoninq is different on the separate parts of the
parcel. The property has been leased to prcvide income to the
General Fund.
The property will be incorporated 'into the city's AlTha
Substation. The exis~ing Alma substation property has 100 feet
of Alma Street frontage. In order to effe~t the conversion of
the substation from 4kV to 12kV operation, additional space is
required. According to the 1992-97 CIP, existing equipmer.t
removal will begin in 1993-94 and the ne"J substation \oIi11 he
constructed in 1995-96.
Approximately 10 feet of the northern-most portion of the 841
Alma property is needed to effect the substation conversion. The
remaining 40 feet of t,he: property 'Will be '.lsed primarily for
access to the substation and parking of city v~hicles when
maintaining the substation. The current cramped space conditions
at the Alma Substation make access and parking extremely
difficult.
In addition, there is a serious problem faced by all
"construction departments" (Utilities, Public Works) at the city
in obtaining adequate storage facilities during construction
proj ects necessary to maintain the aging ihfrastrur.:.ture systelIls.
Major projects a~proved by City council (including sewer line
replacement, st~rm sewer repair, gas main replacement, water main
replacement, electric undergrounding) require materials storage
during construction~ There is a dearth of space in the downtown
area that c~n be used for material~ storage. Eecause this is a
City owned property in d commercial area, we also intend to use
it for some limited materials storage during City construction
activities.
The City Electric Utility currently has four 12,470 Volt
electrical power lines and b.'c 4HiO Volt pOl¥er lines leaving from
the Alma Substation serving the do~ntown area. One line is a
dedicated tie circuit to the northeast portion (Erribarcadero/E.
Bayshore) of Palo Alto. The remaining circuits dJ;liver power to
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the entire downto~n are~ plus the surrounding residential area.
As part of a lc~g-term progran, utilities plans to replace all of
the agin;. 4150 Volt equipmer.t "With nc· ... 12,470 volt equipment.
This plan was apprcved by the Council in the 199D-199S Capital
Improvement rrogram. A revis~d time ta~lE has been approved by
Council in th~ 1992-97 Capital !mprovement progra~ budget.
This application req~ests a Zone Change from CD-S(P) to PF on the
propE!rty so that expansion of the substation can continue as
planned in 1965. 'l'he existing building will be demolished. An
interim wooden fence, similar to the existing fence, .ill be
installed in the side facir.g A.lr.a Street. When capital funding
for expansion of the substation is available, the substation
expansion project will include installation of an appTopria~e
architectural screen along the Alma corridor. RE.com ... tendatioT's of
the Downtown Urban Design Plarl .... ill be considarp--d.
The design developed dl.lrir.g the c!1arrette and shown in the
Downtown Urban Design Plan, that of a brick wall "With vaoden
elements along the top, is very ae:sthetic but may no~ be
compat.Uble ~ith th~ safety clearance requirements for high
vOl.tage electrical sUbstations. We are considering a facade, in
kseping ~ith the style currently prevalent along ~lma Street4
Larqe ac,=ess gates or doors must :be provide.d for vehicle access
an6. equipment installation and relTIova.l. Appropriate aesthetic
details: false windo .... s, planters, etc. cOl..:.ld be incorporated to
softEn and humanize the facade.
Because funding for the design of the su~staticn expansion is not
available until 1994-95, 'We cannot proceed .... ith facade design
until then. However, because remcval of the existing 4kV
substation equipment is scheduled for 1991-94, our plan is to
demolish the building at 841 Alma, build a fence extension ~long
that parcel, the.n replace the entire fence .. ·i th a more aesthetic
facade .... hen funds permit (1995-96).
We believe "We are :oax";'ng a significCl:nt improve=-jent 't.o t:~e area
· ... ith our cOTnmitment to underground Ir.ost of SOFA in Underground
District 34~ scheduled for constr~ction in summer 1993, and our
commitment to install a facade in conjunction ~ith the substation
cOlwersion in ~995-9IL
DISCUSSIONS OF INDIVIDUAL ENVIRONMENTAL ~SSESSMENT WORKSHEET
ITEMS
ITEK 9. Description of project:
This applica-.:ion requests a Zone Change from CD-S(P) to PF on the
property so that expansion of t.le substation can continue as
planned in 1965. The existing building .ill be demolisned. An
interim 'Wooden fence, sil::ilar to the existing fence, .. -ill be
installed in the side facing Alma Street4 Wnen capital funding
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for expansjon of the substation is available, the substation
expansion pr~ject : .... ill include installation of an appropriate
architectural screen along the ;&-.lea Corridor.
ITEM 10. Number ot strcctures proposed and size:
The equipment to be installed in the first ten feet on the ~est
side of tbe property includes a naw metal e~closed swi~chg~ar
housing. The size of the switchgeaz housing is about 9-foot ~ide
by 24-foot long in north-south direction by ll-foot high at roof
ridge. The remaining area to the east side cf the s~itchgear
housing in the lot will be used for vehicle parking and
occasional materials storage. Equipment cn t~e Alma Substation
p~operty will not change significantly.
ZTEK 17. Hazardous Materials:
The operation of the propc!3ed facility will not involvE the
storage or use of hazardous ~aterials. The ~xisting substation
equipment, no~ a part of this zone change application, does
contain mineral oil. The mineral oil is used as an electrical
insulator and coolant. Exis~ing equipment contains about 20,000
gallons of oil. After expansion of t.he !iUb5tClti~n and
replacemant of old equipment with neV, abo~t the same amount of
oil will remain. All new facilities will include full spill
containment eapability. The net result 'Will be a reduction in
the potential hazard.
A 'Waste eil tank ..-as in the back of the p~operty. The tank: has
been removed and the contaminated soil was hauled away. A report
by EMCON Associates on January 14, 1992, is on file in the Public
works Department. A copy of the cover letter of the report is
attached for ref~rence. The Public Works Department has received
tentative confirmation of case closure for the tank.
No other haza~dous materials are pl~nned on this site.
IT'EH 20: Expected energy use: Related to :C;MF:
The existing electrical power substation and overhead and
underground po~er distribution line do create magnetic fields.
Any electrical power conductor carrying electrical current
produces a magnetic field. The strength of the field is
proportional to the ~agnitude of the current, the distance from
the source, and the type of device producing the field.
At the substation, t~o 60,000 Volt subtransmission lines bring
bulk pc~er to the step-down t~an5formers in the station. The
transforruers reduce the voltage from 60,000 Volts to 12,4iO Volts
and 4160 Volts. The transformers themselves are not a source of
magn2tic fields since the magnetic fields are c~ntained ~ithin
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th~ iron cores a:ld are $hielded somew'ha.t by the iron tank
surrounding the core.
The 60,000 Volt subtransmission lines prDdlice a mag .. etic field
along their pathr One line runs through the rear alley. to
Linccln, to Emerson, to Emb~rcadero Road and the other cresses
.a.lma and continues to the Quarry Road S"c:.bstation r.ear the
Stanford Shopping Center4 No change in those field strengths is
expected from either the zone change or substation expansion.
The configuration of the 1 ines (relati \~ely closely spaced
co~ductor$ and on 60 to 70 foot poles) minimizes ths fields.
The current required to deliver po~er at 4160 volts is three
times the current required at 12,470 volts. The planned
conversicn of the existing 4160 volt equip~ent to 12.470 volts
will reduce the current required to deliver poyer to the
surrounding area and reduce the mag;'letic field:;; produced by the
current.
The planned underground conversion project, encompassing the area
bounded by High-Homer-Co..,-per-Addison lordll convprt much of the
electrical service in the area from overhead tv underground.
Conversion from overhead to und~rground tends to reduce the
IDdgn~~ic fields produced by the electrical distribution system.
Overhead power lines require that the lines be separated {about
24 inches) by air to provide insulation~ The required seperation
increases the ar~a their magnetic fields tenj to encompass~
Underground power lines are in close proximity {3 inches) and
their ~agnetic fields tend to cancel. Ne shielding is provided
by burying the po~er lines.
The existing 12,470 volt power lines leaving the substation for
the most part ~~n underground. The existing 4160 volt poweL
lines are all overhead. Eli,m.ir.ation of the overhead 4160 volt
lines and conversion of the substation to 12,470 volts should
reduce the magnetic fields produced by the electrical
distribution system.
The 60,000 volt subtransmission lines are not candidates for
undergrounding. The Municipal Code specifically excludes the
60 rOOD Volt lines from inclusioTI in the undergcounding
requirements. 'The cost to underground 60,000 VCllt lines is also
prohibitively eA~ensive, on the ord~r of $400 per foot.
Ther-e is no consensus regarding the health effects of magnetic
fields. ~ere are no ~idely ~ccepted standards for EMF levels.
The only standards being considered at this time relate to high
voltage (115 1 000 Volts and above) transmission lines for moving
bulk power and not to ~up-transmission and distribution lines~
The rules ~eing considered attempt to prevent new facilities from
increasing existing EMF leVels ~nd do not r~quire mi~igation of
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existing fa,;ilities. The l1tilities Depart,nent is closely
monitoring research in EMF4
ITEX 22. Ngise ~eneration:
The center line of the neJ transformer in th~ substation will oe
l~ated at about thirty teet away from the fence line at Alma
Street. The transformer will be about forty feet away from ~he
property lin£ to the east. Noise froQ the transformers is a
quiet hum ~t all times~ The noi5e produced is well ~elow the
normal noise from traffic on Alma and tbe ~urrounding businesses.
utilities has re~eived a Noise Impact & Mitigation study -Alma
Substation prepared by a consultant. In sl.un.Jllary, the ambient
noise level was dete~ined tc be 46 dBA, the allowable noise
limit according to the Noise Ordinance is 54 dBA a~d the noise
produced by the existing substa~ion at the property line en Al~Q
Street is 56 dBA. Secause no noise producing equipment ... ·i11
exist on the 841 AlIDa property, no noise is cur~ently produced or
will be produced on the 841 Alma property after the plan.r1ed
substation e¥pansion.
The Co:tr:preher.sive Plan defines a ·Superior n noise environment as
one where the noise J.evel exceeds 60 dBA only 10 percent of the
time~ The ~easured noise levels classify the SUbstation as a
"Supe:riorl'l site. The Noise Ordinance permits the Inaximuln noise
level to be only S dBA above the ambient, 43quivalent to
permitting noise levels to exceed 54 dBA only 1 percent of the
time, a much stricter requirement than the Comprehensive Plan.
Based on the stricter requirements of the Noise Ordin~nce, a 2
dBA red~ction in noise at the property line of the existing
substation is required~ However, the Consultant noted ~~~~ that
3 dB changes are essentially the finest that the buman ear can
detectw As a result, the re~~ired mitigatlor. {2 dBA) may not
provide an audible chanqe ... fi The Consultant states that to
achieve a noiEe red~ction of 2 dB~ that a solid ~all vith a
weight of at least 1 pound per square foot is required. Costs
for improvements to meet this requirement range from $7 (plywood
on fence simila~ to existin9) to $30 (masonry) per square foot.
Thus, an 8 foot high by 150 foot lcn~ wall may cost from $8,400
to $36 1 000 not including special acoustical doors or gates. A
reasonable budget for a good-guality aesthet:ically-p1easirJg wall
should be $50/000~
The 1992-q( Capital Improv€@ent Program inclUdes the Alma ~2kV
Substation Addition proj e:ct. Utilities 1" .. os func!ing in 1993-94
for removing the older eq~ip~ent in the substation and in 1995-96
for installation of the new SUbstation equip~ent. We plan to
install a new fac;de along Alma Street in conjunction with the
installation of thG ne~ substation equipment~
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The Zone Change Rl'!qtJ.est now being considered will not increase
the noise levels along Alma Street. The required mitigation (2
dBAJ at the existing substation is be 10"" the ability of the hU:r.lan
ear to detect. We plan to install a fence, similar to the
existing substation fence, along Alma street following demolition
of t-~e 841 Alma building. ~~en the s~bstation addition occurs in
1995-9£ an improved facade will be installed.
ITEM 23. Site drainage provisions:
The existing Alma substation is largely native soil covered lJith
rock~ The rock is useu to reduce the possibility of
electrocution hazard for people in the sUbstation. Follovjng
demoliticn of the building at 841 Alma, this sita will be covered
with similar rock~ Site drainage \o'ill be reduced by reducing the
amount of impermeable surface.
ITEM 2'~ Permits required from other ager.cie-s:
utilit.ies Department will hire a company that is registered tor
asbestos work to inspect the property. Asbestos and/or other
hazardous materials -""ill he sampled. t.ested. removed and disposed
according to the rules and regulation~ of EPA, CAL/OSHA and Bay
Area Air Quality Management District before the demolition work
starts.
The Public Works Department has the necessary documentation to
verify storage tank removal and cleanup. Th~ Public Works
Department has received tentative confirmation of case closure
for the tank at 841 Alma street.
To the best of our knowledge, no other permits are required.
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fnvlronmental Docum~nts City of P.lo Alto
ENVIRON~E~lAl ASSESSMENT
Project !rescription/Title: Application.1.9ur! Zone Map ~mendment fnr 841 Alfll.~_
Street from CO-SiP} ('olmleTci'!l Downtown Service SlJub_distrirt wit~ Pedestrian
Overlay) to PF <PLlolic Facilities} to facilitHJ:~ the future e):"puansion gf an
adjacent electric substation.
l,cation/Address: 841 Alma Street, Palo Alto
Spon~oring Agency/Applicant: City of Palo Alto. Utilities Department
Address and Telephone of Applicar.t: 250 Hamilton Avenue, P!lo~ CA 94301
(415) 329-2365
Application for! Zone~endrnent
Zoning at Project Location: CO·S{p> fee Receipt No.: N",A,-. __ _
NOTICE OF DETERMINATjON
Based upon review of the project files, the undersigned member of the Planning
Department has conc1uded:
IXI Neg'!i" Declar.tion: The proj.ct has no significant environment.l
impact. No Environme:ltal Impact Report is required. The i"e.a;50ns for a
Negative Declaration are;
~attaLhed Injtial Study. A record of the project action is
ivai lab1e for review at t"e pa10 AHo D'E!partment of Pl annina and'
Community Environment between the hours of 8;ao AM to 12;00 noo~ and
1:00 EM tq 5:00 ffl, Monday thro jJ9h Fdday, located on the 5th fl{)or in
the Palo Alto Cjvic Center at 250 Hamilt9n Avenye. Pa10 Alto.
i.] The project may have a signifiC!nt environment.al impact. An
En¥ironmental lmpact Report wil~ ~e prepared.
Planning Department Offici.l: ~. m .Q,Q" ....
Planning Director: )("~ sil:1wA D,te: J;>-/';W/f:.:-=-__
The project has been approved.
The project ~as been denied.
Date:
Date:
Ffl. No.: 9Z-EIA-45
[IANOD 9?·fIA-45
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ENVIRO/!I1ENTAl DOCUMENTS -PAl.O ALTO
INITIAL S'Lmr* **
I. Proj eet Tl t 1 e/ Address : 841 Alma 5t ree t '--_P-au1"'oC2!A.LIt"O'--____________ _
Il. Project Description: &l.Qlicatfon for-a Z-one Map a:1ll!!'ndmerlt for 841 Alma
Stregt from CO-SfP) (CorTUTlercial Dnwiltown S~rvice S:.Jbdj>tric::t with
Pedestrian Overlay) to PF (Public Facilities) to farilitat~ th~ future
expansion of an adjacent el~ctric ~ub$tatiQn.
IlL Er.vironmenhl Setting: Ihg ?roperh ;s a leyel site located ;n an urban
setting. ad"iacent to th~ Alma Street Substatiorl. a creamerv and other
cOmmercial buildings. The site is developed ~ith a 3,750 square foot
building and 4 parking spaces. The building was fQrmerl~ occupied by an
automat j yg seT'V T ce and repa i r u a, and is currel,t 1 y vacant. Therf.! is no sicn1fitant veg~tat;on on the property~, ____________________________ __
IV~ Enifironmental Impact Checkl ist (Explanation of aJl "yes· and "maybe
answers are 1" Section V)
1. .lli1b.. Will the proposal result in:
B~ Unstable earth tonditions or changes
in geologic substructures?
b. Disruptions, displacements, tomp~c
tion or Dvercovering of tha soil?
c. Change in topography or ground
surface relief featur!s?
d. The destr~ttion, covering Qr modi
fitation Cof any unique geologic or
Physical featurl:s?
e. Any increase in wind or water erosion
cf soils, either on or off the site?
f~ fxposure of people or property to
geolog~c hazards such as ~a~thquakes.
landslides, mudslides t ground failure
or simi;ar hazards?
.ru MAVBE
_X_
_X_
.. Adapted from Appendix I, Califcrnia Guidelines for Implementati{ln of
CEQA. December 14, 1976,
** Update~ May 1982. JJne 1983
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2. Air.
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c.
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Cnanges in s1ltation, d~posltior.. or
erosicn which may modif.v the cMannel
of a ri \o'er or the bed of a bay or
inlet?
Will the proposal result in:
Substantial air emissio~s or de
ter;orat~on of ambie~t aiY Quality?
The creation of objectio~able odors?
Alteration of air movem~nt, moisture
temperature. or any chan9~ in clI-
mate, either locally or regional?
3. W~ter. Will the ~roposal resul tin:
i. Changes in absorption ~ates, dra;nag~
patterns, or the rate and amount of
surfa~e water runoff?
b. Alterations to the course or flow of
flood waters?
c. Discharge into surface waters. or in
any alt~rat1on of surface water
quality, including but not limited to
~emperature, dissolved oxygen or
turbidity?
d. Aiterat10n ~f the dirfct10n or rate
of flow of ground waters?
e. Exposure of peJple or property to
water reTatpd roi1zards suer. as fl aDd
ing or tidal Wl'{e?
f. Change in the quantity of ground
waters, either through direct
a~dit10ns or withdrawais, or throug~
interceptions of em aqui fer by C!;ts
or e.xcavations?
4. plant life. Win the proposal rt:'!sult in:
i. Change in the di¥ersity of species, or
number of aT1Y species of plants (in
cluding trees, shrubs, grass? creps,
microflQra and aquati: pla~ts)?
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b,
c,
d,
Reduction of the numbers of anv
unique t rare or endangered species
of plants?
introduction of new species of
plants into an area, cr in a barrier
to the norma' replenishment of
existing species?
Red~ction 1n acreage of any
agricultural crop?
S. Animal l He. Will the proposa1 result in:
i. Cnan~~ in the diversity of sp~cies,
or or any species of anTmals (birds,
lan~ animals ;nc'~ding repti1es,
fish and sne11fish. benthic organisms?
i~srcts or microfauna)l
b. P.eductfon of thF! numbers of any
unique, rare or endangered species
of arllma1s'~
c. Introduttion of new species of
an1mals into an area, or r!s~lt in
a barrier to the mi~ration or move
ment of animals?
d. Deterioratl0n in existing fish or
wildlife habitat?
6, Noj,.. Will tn. peopos.l result in:
7,
8,
a. fncreases in existing n:lise levels?
b. tXposure of people to ~evere noise
1 eve1s?
li.<lht and Glare, Wi" the propo •• '
produce new light glare?
land U~e. Will the proposal result in
a substantial alt~ration of the prese~t
or plann~d land use of an area?
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9. Energy/Natural Resources. lIil1 the
pro~osal r~sult in~
iI: . Use of subs tant ia 1 amount s of fue 1
or energy:
b. Substartial i~crease in demand upon
Existing scurc~s Qf en~rgy, or
require the development of new
sourceS or enetgy1
c. increase 1~ the rate of use of anJ
natural re~cur:es?
d. Substantial depletion of any ncnre
ne~ab1e ~atur~l resource?
10. Ri5K of Ups@t. Ooes the proposal
invclvE a rlsK Df an explosion or the
release ~f haz~rdous substances (in
clud1ng. but not limited to, oil,
pesticides, chemica1s or radiation) 1n
the e .... ent of a.n ilccident or vpset? J...
J1. Poplthtiofl/Hoys.ing.
a. Will the proposa1 alter the location,
distribution, density. or growth rate
of the human populalro~ oj an area?
b. Will the proposal effect eXisting
hous'r.9~ or create l demand for
additional housing?
12. Tra"-sportatio!'1/Circuht;on~ will the
proposal result ~n:
a. Generation of substantial additional
vehiCUlar movement?
h. Effects on existing parKing fadl i
ties~ or dema.n.d for nelll park.;.~g,?
c. Alterations to prese~t patterns of
circu1ation or movemert of people
aJH1/or gonds1
d. Increa:;e in tra.ffic ha.zards to motor
vehicles, bicyclists or pedestriar:5?
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Public Services. will
an effect upon, or res
or altered governmentc
the follolJdng areas:
i. ~ire protection?
b. Pol ice protectiof1?
c. Schools?
e proposal ~iI.\le
in a need fo," new
~rvices in any of
d. Parks gr other recreational
facfl it ies?
e. Mai~tenance of publfc facil~tiesl
inc1~din; roads?
f. Other governmental ser~fces?
14. Utiljties. Will the propos.l result in a
n~!d for new systems, or subst~ntia'
Alterations to t~e following utilities:
i. Pow~r or natura1 gas~
b. Communications systems?
c. Water?
d. Sewer or septic tank?
t. Sto~ water dralnage?
f. Solid waste and disposal?
IS. f1Um3n Health. IIi 11 the proposal result ; n~
i. (reatior= of any health hazard or
potential nealth hazard (excluding
msntal health}?
b. Exposure of people to potential
h.a1th hazards?
16. Aesthetics. Will the proposal TfsuH
in the obstructfon of any scenic ~ista
or vie. open to the public, or will the
proposal resuH in the 'reation of an
autheticany offensive site open to
public view?
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BJ>creation. Will the proposal re~uH
in an impact .upon the qua1ity or quantltj
of exis;tinS recreational opportunities'?
18. Cultural Resovrc~s.
i. lJill tile proposal resuJ t in tI"oe
alteration of/or the destruction
of a preh~stDrjc or historic
archaec'o~ica1 site!
b. Will the proposal result in ad
verse physlcal or aesthetic effects
to a prehistoric or historic
building, structure; or object?
c. Does the proposal have the potential
ttl cause a physlca1 cnange which
would affect unique cultura1 values?
d_ Will the pr~posal restrict eXisting
religious or sacred uses within th~
.potenti~1 impact area?
19. MandatQrv Findings of Sjgnfficance.
a. Dces the project have He potential to
degrade the quality of the ~nv;rcnment)
substantially reduce "the habitat of a
ffsn or wildlife species~ cause a fish
or wi1dlife population to drop below
s~lf·sustaining l€vels, threaten to
eliminate a plant or animal CDlilmur:Hy.
red!Jce the number or restrict U,e
range of a rarf or enda~gered pla~t or
animal or el iminate important examples
of the mil'.jor periods of California
history or prehistory?
b. Does the project have th~ potential
to achieve short-term~ to the dis
advantage of 1 oilg-term~ environmental
goal s? (A short-term impact on the
environment is one which Occurs in a
relatively brief, 'C'efiiliti ... e period
of t1me ~hile long-term impacts will
endure well into the future.)
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c. Dc;es the-proje"'t ha\lf impacts which
ate ind;~id ~11y limited, but
cumuiitive'j con!iderable? (A pro
ject may Impact on two or more
$eparate resources wher~ t~~ ;mp~ct
on each resource is relatively
s."Tlill. but where the effect of the
tetal of those impacts on the
environment is sfgnificant,)
d. Does the project hav~ environmental
effects which will cause substantial
adverse effects en human beings,
either directly or indirectly?
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Y. Exp1an~t1on of ·yes· and ~maybe" answers in environmental checklist.
See attached.
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This project consists of an QITIenome-nt to the Pa10 Alto Zena Map to chalige-the
lonlng at 841 Alma Street from CD-SIP) to PF to facilitate the future
£xp'ns~on of the adjacent Alma E1ectric Substation. Ine City purchased the
property in 1965 and merged it wi~h the Alma Substation site to facilitate
required expansion. Th~ result i~ . site with spl~t zoning of PF on the
portion containing the substation ana ~ommercial zoning on the S41 Alma Street
site. Pre¥iously, the City leased this space to provide ~ncome to th~ General
f~nd, but it i1 currently vacant. Th~ City inte~ds to demolish the e~istin9
3,750-square-foot bu;ldi~g to facilitate the expansion and con¥~rsion of the
eXisting substation from 4K~ to 12~V operation to meet the demands ~f the
Downtown power users.
Through the 1992-97 Capital Improvement Program (eIP), the City identified the
need to corn?l~te the expansion and ~P9TQdes to the current facility in ordey
to provide adequate service to customers. According to the 1992-97 CIP,
remo"ral of existing equipment 'IIi11 be9in in 1993-9-4 and the new substation
wi11 be constructed in 1995-96. Below is an ana1ysis of potential
etwironmental impacts created by the COf1strlJction ani:! operation of a nE\I; 12kV'
substation.
The rezoning of H.E! pl"'cperty and f'~tl.Jre consti'uc:tion of the new slJbstation
w111 not increase the potential deve:lopmt!llt in the Downtown area. De .... elopment
potential is regulated by the Zoning Ordiniince and .,ill not be affected by
this action. Full buildout of the Downtown area was assessed in the
Environmental !mpact Report prepared f~r the Citywide Land U£e and
Transportatioll Study.
1 lb.) rf} Earth. The City of Palo Alto, Utilities Department "ill con!;:truct
an addition to th~ Alma Street S~bstation, caus1ng ln in)i9nif~cant amount of
disruption and compaction of site s~i15 during construction. To facilitate
the construction of the add':tion, the existing buDding ... ·;11 be demo11shed,
resulting in reduced impervious slte coverage. Reduction of site coverage ~s
a benefit in that it )ncreasoE's the site's ability to assimilate water and
reduces surface runoff.
The pro}:-ct site is 10cated in a seismic arEa of moderate risk, and 'wouTd be
subject to very ~trong flroulld sr,aking in tn€' evant of <in earthquak.e. Any new
constr~ction wou1d be subject to t~e pro~isicns of the current Uniform
Building Code regarding minimizing seismic risk and preventir'1g loss of life
and property.
2 Cal Air. Any project that inc1u~~s cG~struction will create dust. To
reduce dust levels during future construction, it shall be required that
expos~d earth surfa-c~s be ,*,atHe-d f1'equei1tly durir,g the late mOTTling and t~e
i!nd of the day wah frequency of watering increasing 0n windy days. Reclaimed
water, in accordance ~ith th~ ?ubll~ ~ork~ Department policy, shall be used
for this purpose. All streets ~nd haul routes shall be cleaned daily.
Spi1"lage resu1t"ing from hauling operations along or across any public OT
private property shall be removed irnmed'iately.
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6 ta} Hoise. The futurE: e:<pansiof1 and conversior'l of the existing 4k\' to a
12kV s~bstation will result 'n a slight increase in noise prod~ced by the
suustation. New transforners 'Wiil be 10cated approxlmate1y .30 feet from the
property line at Alma Street. Noise from transfor~ers is a quiet hum at all
times. The noise produced by tlie transformEr is. 'wE:ll be10w the normal noise
from tl'"affic 'On Alma street. He loce:l ambient was determined to be 45 egA.
The new substation will produce 56 dBA at the property 1 ine adjacent to Alma
Street. This noise level ~JmpliEs wIth the pro~isions of the Noise Ordinance
~~ich restricts noise levels produced or, public property to 15 dBA above the
local ambient. Any increase ~n the r:ol:5e leve:ls produced by the: sub~tation
will be offset by an acoustical ",'a1l constructed alQng U1e Alma Street
p~perty line. Th~ deSign tf sucn a wall would be subject to review and
approval by the Architectural Reyi~w Board (s~e Section ]5~ Aesthetics,
bel 0'-) .
to Risk. of Upset. The operation of the propos2d facility \linl not in\lolve an
increase in storage or ~se of haLardoui materials. The existing subst!t;o~
stcres approximately 2'0,000 ~allons of ~,lner.l.l ojl which is used as an
electrical inslJhtor and cMlant. The expansio~ .. ;11.not result in an
incf'ease in the amount of oil stored on-site. The new facilit;es 111111 include
full spill containment capabilities and will receive any necessary siorage
permits from the Hazardous Materials Division of the fire Department.
A waste oil tank was remo~~d from the rear of the property and the
contaminated s~il was h~u'!d cff·site. The Public Wor~s Department has
rectived tentative confirmation of case closure for t~e removal of tne tank
and residual contaminants from the Santa CTara Ya1ley Water District.
For discussion on possible hazard's ('If electric a!"1d magr.etic fie'ds, See
Section lS, Human Health, below.
13 eel PubliC Ser''';ces. The new substation ~ill res lJ1t in increased
reliability in electrical service to Downtown customers. The equipment at the
existing substation was installed in the 1950;s, and has a life expectancy of
approximately 40 years of service. The ne .... I::'q'J1pment wil1 require less
maintenance ~nd is expected to provide service tl1e Downtown area for the next
30 to 40 years.
15 Cal (b} Ht,;man Health. Tn'? exist Ing e1ectrica1 pOW2"!'" substation and
overhead and urlderground pOWEr distribution lines create mag:'1etic fields. Any
electric power conductor carrying electric current produces a magnetic-fieTd.
The strength of the field is proportional to the magnltude of the current. the
distance from the source, and the type of device producing the field.
The 60,000 Volt sub-transmission 1ines, which bring bulk pOl<'ler to the step
down transformers in the substation, produce a magn€tic field along their
path. Two such lines curr~~tly connect to the Alma Substation. O~e line runs
through the allay at the rear of the site, to lincoln. Emerson and £mbarcadero
Road. and th!!! other crosses Alma (ontinuil1g to the Quarry Road Substati~n near
Stanford Shopping Center. No change 1n tl1e field strengths or their locations
will result from the expansion of the Alma Substation.
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The electric current required to deli .... er pO'",er at 4,J&O volts to the existing
substation is three times the current re~ujred for the propo~ed 12 ,470 volt
operating leve~. Th~ p~oposed con .... ersion from 4kV to 12kV operation will
reduce the electric ,urre~t required to deltver power to the surro~nding area,
th~refore reducing the magnetic fields produced by the current. Additionally.
the 4kY overhead lines, w~ich produce a 'arg~ mag0etic field, will be
eliminated. The conversion to 12k¥ will enable t~e Utllities Department to
utnize underground power lines, which tend to cUicel cut magnetic fields due
to their (lose proximity to one anoth~r.
There is no consensus regarding the heal th effects cf rnagn2t ic fields. There
ar! also no widely accepted standards for Electric and Magnetic Field (EMF)
levels. The c:'lTy stu,dards currentiy being cor.sid2red relate to high-.... oHage
(llSIOOO Yolts and above) transmission lines for mD~ing bulk power. These
standards do not apply to sub-transmission or distribution lines.
16 Aesthetics. In prep~ration for the proposed ax~ansion cf tne ~ubstation.
the existing 3.750-squar'!!-foot bu"i16ing wlll be d'.?tuo1 isned and a wooden fence I
stmilar to the existing fence at the north end of the'property, ..-i1l be
erected a.long the Alma Street property 1 ine. At the time of corlstruction of
the new substation l a more aesthetic barrier will be constructed to screen as
much of the substation as possib1e within sc.fety clearance-requiremenU for
hl9'h v{lltage electrical substations. The design of the screen will be
re~iewed and approved by th~ Arcnitectural Review Board (ARB) and shall
cons1dl;r the. recommer,dations of the Downtown Urban Design Plan. Construction
of a new screen at the Alma Street frc!'ltage, a70ng with vndergrc-unding of
transmiSSion lines will lessen the visual lmpact of the these facilities and
enhance the appearance of the South of Forest Area.
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