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September 30. ~993
HONORABLE CITY COUNCIL
palo Alto, California
Comprehensive PI en Update: Recommended Changes To
Phase II Work Prggr am Budget and Time Frame
Members of the Council:
REPORT IN BRIBF
This report describes and recommends City Council approval of a set
of ad4itional work program and budget items regarding Phase II of
the Comprehensive Plan Update. Specifically, the recommended
additions to the original work program and budget include:
1) Expanding the Phase II Work Program to include Community
CharacteriDesign and Governance elements;
2) $185 1 000 funding for expanding the work program in the above
areas l inc~uding related ($10, 000) transportation costs in
Phase II;
3) Lengthening the time frame by three months for Phase II to
incorporate these additions to the work pr,ogram.
Lastly, the report will describe the status of, and expanded CPAC
representation on, the Process Management Ccrnrr~ttee and the next
steps in the process.
BACKGRO!!ND
purpose of the Request
The dedication and quality of the Comprehensive Plan Advisory
Commlt~ee (CPAC) has exceeded expectations, when this highly
participatory process wa~ approved by Council in October 1992 and
later when Council appointed members and alternates to CPAC in
early December 1992. CPAC not only wishes to pursue those topic
area~ identified in the original work program appr~ved by Council
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(including a.ll areas mandated by the State I, but the committee also
wishes t,o pursue developing ana testing concepts to improve the
character of Palo Alto as this community proceeds into its next
generation of development. The Committee also has expressed keen
interest in considering new ways of invol"ling our citizens in
decision making and in assisting the overall functioni~g of the
City. This Committee, through its efforts in shaping the
Comprehensive Plan. wishes to leave an imprint on Palo Alto's
future in ways perhaps not envisioned in previous endeavors. Thus r
the Committee would like to pursue development of policy options in
the context of all inter-related planning issues, such as physical
form. economics, and transportation, particularly for those areas
where rede~~lopment is most imminent. It also wishes to develop
new concepts for ~doing business.e that would allow greater public
and neigt~rhood input on all changes facing the City.
Staff supports their innovative proposal to expand the process as
it is described in this report. ;'"11i1e it is not traditional to
test policy options in the course of the Comprehensive Plan, """e
believe that this is one of the failures of traditional long-range
planning. By utilizing the integrated approach thf"ly have
identified, the Conmittee will have the advantage of testing
options prior to finalizing policy recommendations. '(jsually~
communities test their policies only in follow-up studies after the
plan is adopted. The approach recommended by CPAC should lead to
a document that is easier to imple~~nt.
City COUncil Actions
During mid-1992. the City Council devoted a significant amount of
time in determining an appropriate work program, public participa
tion process and funding for the first major update of Palo ~to's
Comprehensive Plan since 1980. When the City Council acted on the
above items 00 October 19. 1992. the Council stated that:
1) It expected the Comprehensive Plan update to be completed
within a realistic, but as short, as possible. time frame,
i.e •• within less than threE:! years;
2) It desired a process that assured bT.oad public participation
from all diverse segments of the community; and,
3) It approved a b'l:dget tl"..at provided funding for 1 imited
professional serv~ces on mandated elements (e.g., noise,
safety and transportation) and a few discretionary topic areas
(e.9. I economic analysiS) ~ professional facilitation for a
large advisory committee during the initial two phases of the
four phase process. and public participation and production
expenses +
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New Issues in CPAC Phase I Process
During Phase I, the two areas that generated si~\ifjcant interest
which were not contemplated in the approved wor}: program lro"ere 1)
communit~t character/design. and 2} governance, including a more
effective inclusionary participation processes. The interest in
community character/design and governance emerged from all forms of
~;treach by CPAC --the phane survey, the mail-in comment sheets,
field tours, outreach nxit ft meetings, community workshop, and from
the CPAC subcommittees.
With the exception of corrmunity character/design, governance, and
transportation st.udies related to the community character analysis,
staff believes that all other topic areas identified in CPAC's
Visions, Goals and Preliminary Issues document -can be satisfactor
ily addressed within budget in thE Phase II policy options phase of
the Plan update.
StablS of Schedule and Budget
Phase I of the Plan update process, which focused on CPAC
developing a recommended list of visions, goals and preliminary
issues, is being completed on time according to the work program
and schedule approved by Council in October 1992.
A special all-day CPAC meeting was held on Saturday, July 24, 1993,
which was necessary for CPAC to finalize its preliminary draft of
the visions, Goals and Issues document. This meeting was not in
the Phase I work program, the approved budget, or: the contract with
the facilitating firm of Moore, Iacofano and Goltsman (MIG). This
meeting's expenses amounted to $6,100 and are being funded from the
City Manager's Contingency" An amendment of MIG's contract will be
submitted to Council in the near future.
PROCJSS FOR ADDRESSING COMMUNITY CHARACTER/RESIGN ISSUES
The community character/design issues raised by CPAC are, in the
end, a conc~rn with prese=ving those qualities of the City that
people enjoy and appreciate, and in repairing the damage caused by
the lack of those ~lalities. It i.s important to consider these
physical charac.ter issues in the Comprehensi ...... e Plan revision
process in order to explore how policy consi:ierations in the areas
of transportation, open space, business .. hou.Sir.i.g, and environmental
resources will manifest themselves physically when they are
implemented" A sound understanding of the phy"sical. social and
psychological qualities t.hat make up the individual districts.
including commercial as well as residential areas, is an essential
basis for developing poliCies and programs that are consistent,
when implemented, with the desired form, character and values of
the cormm..m.ity.
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Tbe Comprehensiv"? Plan Advisory-Committee members held a meeting on
September 9, and the majority concluded that the process selected
for addressing comrmmity des";gn issues in Phase II should: 1) hav-e
a high deg:r:ee of public participation; ;} provide for educating
CPAC rnef'lll)ers and the general community on design issues; and J}
include professional design expertise to direct tbe pzocess and
produce the final product, but leverage that investment by using
significant volunteer expertise within CPAC and the comrrrl.lnity to
enhance and expand it. The process also needs to provide for the
integration of community chazacter issues 'wr.'ith the other, more
traditional components of the Comprehensive Plan.
Organization of the Proces~ for
Addressing Community Character Iss\les
The organizational struct.ure being tentatively proposed is shown in
Attachment "A·, Co~unity Character Process Diagram. The actual
process organization would be finally determined by CPAC's Process
Management Group --CPAC members, including the co-chairs. who meet
regularly to direct CPAC' 5 work. The proposed process is a ty .... o
tiered approach. with the City divided into six geographic
districts for the purpose of addressing corrmunity character issues,
While other topics are addressed by content area on a citywide
basis_ CPAC members would sit on a district community character
commitcee and also on a citywide content area committee. A member
from each citywide committee would serve on each district
conrnit1:ee.
The work of all these groups would be conducted concurrently a~d
would proceed through four stages: Research/Data Collection;
Analysis/Concept Development; Synthesis and Testi-og; and Products.
For the purpose of addressing design issues, the City could be
divided into six districts, with each district composed of
residential neighborhoods that are roughly homogeneous with regard
to p..~ysical characteristics and T,Jihich share an interest in common
planning issues. Adjacent commercial and cffice park area~ would
be incorporated inLO the six districts. The boundaries of the six
districts are tentative, and they would be finally determined by
CPAC during the early stages of Phase II. While a larger number of
districts could be identified, it is recommended that there be no
more than six districts because of the need to control the number
of meetings and the allocation of CPAC. staff and consultant
resources.
Tbe work ot the six district committees in each of the four stages
is described below.
Research/Data collection -The goal of this first. stage "Would
be to define the character of the individual districts and
subareas within the districts. CPAC and community volunteers
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would be trained to gather and record urban desjgn information
in a systematic fashion. Examples of activities in this stage
rnigt:.c. include visual preference surveys, walking tours,
behavioral observation, interviews, phato studies, field
measurernents~ and Planning Division and Building Divisio:1
document research.
Analysis/Concept Development -The information gathered by
CP.~C and the cornmt'nity in the first stage would be analyzed to
identify prototype concepts that can prm.dde a basis for
improving the area over ti~~. shaping future development ar.d
change, or preserving certain special features. For example,
it might be observed that an area has a particular pattern of
scale and arrangement-of buildings, yards and setbacks. and
that this pattern has been broken by multiple-family residen
tial structures. Various typologies of multiple-family
housing could be studied by CPAC, visiting housing sites in
Palo Alto and in other communities, reading articles on the
subject, or inviting architects to speak on the topic.
Mul tiple-family housing forms which seem to be more consistent
with the existing pattern of development could be studied to
identify the design qualities that make it more compatible.
Synth@sis/Tgsting -This is the stage in which participatory.
hands-on desi~ workshops take place. The prototypical
concepts and issues t~~t have been identified in the preceding
stage would be tested in two-arid three-dimensional studies
by design professionals with input from .stakeholders, n
intel:ested citizens and neighbors, real estate developers. and
finance and transportation experts. There would be up to f-:..ur
workshops. each focusing on a particular site. Sites 'Would be
se~ected ~hat have a strong potential for redevelopment in the
relatively near future, and that provide an opportunity to
develop multiple prototypical concepts and solutions that o::an
be applied in other parts of the city. The final selection of
study sites 'Would be made by CPAC. An important objective of
each workshop would be to develop redevelopment concepts that
are specific enough to be translated into planning policies
for consideration in the draft anc final Comprehensive Plan.
Products The products describing and illustrating the
concepts and solutions generated by this process will be in
graphic as well dS narrative form and may include maps, plans,
sections and elevations. perspective drawings, photographs,
slides or video. The products need to clearly describe both
of the following: 1) the character and qualities of the areas
identified in the first phase of t.he process, and 2) the
prototypical concepts and solutions developed in the partici
patory workshops. These will be the basis from which the CPAC
develops proposed policy and program options to implement the
community design visions and goals.
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The product,s or outcomes that are expected to em€rge from this
process includs: the following:
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Community Character Element in the CornpL-ehensive
Plan;
Development of prototype ~gn cQncepts~
splutlQne for addressing similar design problems in
the future;
Development of protot~es for integr.ating all
planning and land use ~ssues. e.g., transporta
tion, housing. economics, public open space. et.c. J
utilizing three-dimensional tools that effectively
communicate to the general public the consequences
of policy actions;
Policy guide for how to improve neighborhoods and
commercial areas over timej
... A vision for how to resolve "'tough" building or
site issues;
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Plans for how study sites could be developed in a
manner found acceptable by the community and tested
as econorndcally feasible and buildable by the
finance and development experts;
Design criteria for selection of ongoing replace
ment of infrastructure (e.g., street lights);
Policy guide for future public investment;
Policy guide for revisions to zoning code and City
engineering standards, to make them consistent with
the three dimensional vision of the community as
expressed in the new Comprehensive Plan; and
Development of prototype R~ocesses for dealing
with future projects.
use of Professional Design Coneultant
Conducting a process of this type and bringing it to a successful
and timely conclusion with a useful product will require the
expertise of a professional design consultant (s). The consul
tant{s) will bring to the process specialized knowledge and
technical expertise in architecture and urban design. Their
primary responsibilities will be to educate, organize and direct
the work of the six district conmittees so that work proceeds
smoothly from one stage to the next; to coordinate wi th the
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concur~ent work of the content-area committees; to be in charge of
the participatory workshops, including sol ici ting the participat ion
of professional organizations such as the Mer icarl Inst itute of
Architects (AlA), the Urban Land Insti tut.e {ULI} , the American
Society of Landscape Archit2cts (ASLAJ and American Plan..l1ing
Association (APA). and oth~r innlv1.d11al professional pa!"ticipants.
The consultantCs) will continue to be involv~d through Phase III of
the CCJIITiprehensiv-e Plan prc~ess and will be responsible for the
final completion of the Corranunity Design El.em~nt, and for design
related issues throughout the Comprehensi"le Plan.
PROCESS POR ADDRESSING I~ORE INCLUSI01IARY ROLE OF
CITIZENS AND NEIGHBORHQQDS ~N DE~SIQN MAZING
In the Draft Goals and Visions Document, the CPAC ~as identified as
a vision of governance that, 1fThere 'I;Oill be an inclusio-nary
political procees for decision making in the City. Residents,
businesses, City government and o~her government institutions will
work as allies. forming public/privat~ partnerships while fostering
community leaderahip and service"-The importance of this issue
was further confirmed by CPAC at their September 8 meeting, when a
large majority of C~AC members identified this vision 3S very
important and expressed a preference for hiring professional
a6sistance to develop policy optiens for creation of different ways
for neighborhoods to participate in resolving important issues.
Some CPAC members and other resident volunteers have expressed a
strong int.erest in playing an active role in the development of
neighborhood-based participatory processes. The role of the
professional consultant would be to coordinate volunteer efforts i
to provide professional expertise and guidance in organizing and
directing activities in Phase II. to coordinate with the other
components of the Phase II process. and to be responsible for
facilit.ating CPAC in their development of policy and program
options for the Goverr~nce Element of the Comprehensive Plan.
Prototype models tor neighborhood participation in decision-making
would be developed in coordinacion with other parts of the Phase II
Comprehensive Plan process. The highly interactive process
envisioned fer developing the Co:mrunity Cr.aracter!Design Element,
particularly for the hands-on design workshop events, is especially
well suited for testing various approaches to neighborhood-based
decision making. HCN'everl policy and program options in other
copic areas, such as social services. emergency preparedness and
neighborhood pclicing. could also be explored, using various
citizen participation models. The end product of these efforts
would be processes and strategies tor neighborhood-based participa
cion in decision making, from which CPlI.C will reco1llmend policy and
program options in the Governance Element of the Comprehensive
Plan.
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The estimated cost for incorpo;;ating a Community Design Element
into the Comprehensive Plan, including work and public
participation to be accomplished in Phases rI and III of the update
p~~ess. is $150,000, This fi~lre incorporates t~c assumption that
t.here will be a significant. amount of CPAC, professional volunteer.
conmunity v'olunteer, and City staff time allocated to this work.
The Process Management Committee and City staff will tight I}· manage
the consultant work, and pressures to expand the work of the
consultant will be denied. In other words, the $150,000 is a
minimum budget. Fewer resources would not permit the work: to be
completed in a timely manner and perhaps not complet.ed at all.
Bven with $~50.000i there may be a need for additional funds for
~efinement5 necessary for completion of Phase III. CPAC and scaff
will bP. in a better position to evaluate the full costs of Phase
III near the end of Phase II.
The $150, 000 includes approximately $25,000 each foz: the first two
work stAges (ResearchjData Collection and J...nalysis/Concept
Development) and an additional $25,000 for the fourth work stage
<Production of the Draft Communi.ty Character Element). In work
stage 3 (Synthesis and Testing), $75,000 will be used to conduct
several multi-disciplinary interactive participation workshops.
The number of workshops and the duration and topics to be studied
will be decided by the Process Management Committee, based on the
first two stages of work. A one day wo-r:-Kshop focusing on a
relatively limited area could cost approximately $5,000, while a
workshop lasting several days, involving several experts and
focusing on a larger or more complex area r could cr.)st $50, ODD.
Study sites and topics will he selected in order to get the most
benefit from the limited reSOurces.
The services of a consultant for addressing the inclusionary
process issues in the Gcvern~~ce Element, as described above, are
expected to cost approximately $25,000. The consultant's
activities will be primarily in Phase II, working with CPA-C.
neighborhood groups and other volunteers to develop citizen
participation seategies in coordination with other Phase II
activities~ but also continuing into Phase III to assist with
preparation of the Draft Comprehensive Plan Document.
Add~tional Transportation Costs in Phase II
In reviewing resources necessary to proceed with Phase II regarding
transportation visions, goals and preliminary issues,
Transportation Division staff has determined that a..-.,. additional
$10, 000 will be needed to test the traffic model on alternat.ive
land use densities that will be developed if the City approves
special Phase II work on conmrunity design. In addition. use of
these funds would be expended to test effects of "calming" traffic
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techniq\.les consistent with design concepts that may be developed in
Phase II and attendance ~f transportation consultant at the handE
on design workshops.
In summary. additional work identified by CPAC for Phase II of the
Comprehensive Plan Update process is esti~~ted to cost $185,000.
If Council approves use of these funds in Phase II OIl October 4,
1993/ they will be included in a budget amendment ordinance (BAO)
submitted to Council in November. Thus, staff would conduct the
consultant selection process to result in contracts not exceeding
the amounts identified above.
REVISED TIME-LINE AND PARTTCIPATIQ~~
Some additional time will be required in Phase II beyond that
originally scheduled if the additional Camrr,unity Character and
Participation issues are to be developed as proposed, with Phase II
ending in October rather than in July, 1994.
The attached Phase II Process diagram shows the revised
organizational structure and time line being proposed in order to
integrate the policy and program options developed in the citywide
traditional topic areas with those being developed in the related
areas of communi~y character and neighborhood participation (see
Attachment ·B~l . This information will be integrated and tested
in the participatory Co.'1"Im1..U1ity Design Workshops. After the
Workshops. a final pair of subcommittee meer.ings will be held to
refine policy and program options before the Draft Policies and
Program Options Document is prepared and reviewed by the full CPAC.
Status of Expanded CPAC Representation on the
Process Management Committee
At the outset of Phase 1 in the Plan update process. a Process
Management Committee (PMCI was formed to review the progress of
CPAC and discuss topic areas of expected Committee activities. At
the beginning of Phase I, the PMC consisted of the CPAC Co-Chairs,
the fou~ City Council liaisons to CPAC~ the Chair of the Planning
Commission, City staff merrbers, and the consultants who facilitate
the CPAC meetings. The PMC usually meet monthly follo~ing a CPAC
meeting.
Informa~ly at the latter part of Phase I, particularly in regard to
the preparation of the Visions, Goals and Preliminary Issues
document. CPAC's role in guiding t.he process expanded; and a
Document Revision committee was appointed by CPAC members to guide
Phase I to its conclusion. As a result, CPAC :tepresentation on the
PMC has expanded by th~ addition of six Committee members, who were
selected from a number of volunteers by the Committee Co-Chairs at
the September 9 r 1993 CPAC meeting. The new PMC members from CPAC
are: Kevin Conlin, Sandra Eakins, Richard Rathbun, Kathy Schmidt,
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Tricia Ward-Dolkas. and Gee Gee Williams. This group is expected
to participate extensively in planning and organizing Phase. II
process.
=:I STEPS
The attached diagram (Attachment BJ illustrat~s a recommended Phase
II process~ if appropriate res'ourc:es are approved for cormnunity
character/design and governance. This diagram illustrates that the
Comprehensive Plan Advisory Committee is scheduled to nkick off"
Phase II on Thursday. October 21. Staff will return to Council in
November with budget a.mend-ments reflecting those items approved by
Council on Octooer 4, 1993. Change orders to existing contracts
also will be s~mitted to Council at that time or sooner.
COU!lcil will be requested to approve contracts. in December 1993 or
January 1994~ for-those professional services contained in the
budget approved by Council in 1992 and for t.hose professional
services approved by Council on October 4, 1993.
CPAC is expected to complete Phase II. i. e" development of
Comprehensive Plan policy and program options, by July 1994; and
P1anning Conmission and City Council public hearings on CPAC's
recommended Phase II policy and program options should he completed
by October 19S4. This extension will impact the entire
Comprehensive Plan t-imeline by moving the expected Phase IV
completion date from September 1995 to January 1996.
The preparation of a draft Comprehensive Plan in Phase III will
reflect those policy and program options selected by the City
Council at conclusion of the Phase II public hearings.
RR~ATIQNS
The Comprehensive Plan Advisory Committee, wit.h strong support from
Btaff, recomn~nds that the City Council take the following actions
to initiate developme~t of Comprehensive Plan policy and program
options in Phase II, consistent with the COmmL~ity Visions, Goals
and PreliTanary Issues endorsed by the Council:
1.+ Approve the expansion of the work program in Phase II to
iDc1ude supplemental work on community character/design and
governance for inclusionary public participation,
2. Approve supplemental f~~ding in the aw~unt of $185,000 for
Phase II that 'Woule include $150,000 for conununity design~
$25,000 for professional assistance on inclusionary
participatory concepts r and $10.000 fOI-special transportation
analysis; and
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3. Approve modification of the time frame for Phase II and the
entire process by three additional months.
Respectfully submitt.ed r
k~
GEORGE ZItM1&Rl'~
Assistant ng Official
City Manager
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KENNETH R. SCHREIBER
Director of Planning and
Community Environment
Attachments: A Community Character Process Diagram
B -Phase II Public participation Process
cc: CPAC Committee and ~ternates
Technical Advisory Group (TAG)
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COMMUNITY CHARACTER PROCESS DIAGRAMi
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Attachment 6
Comprehensive Plan
Phase II Process Diagram
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