Vdocuments - MX - City of Palo Alto City Staff Report On Future of Palo Alto 2013

8/13/2019 City of Palo Alto City Staﬀ Report On future of Palo Alto (2013)
City of Palo Alto (ID # 4294)

City Council Staff Report
Report Type: Study Session Meeting Date: 12/2/2013

Summary Title: Initiate Community Conversation on Planning and
Transportation Matters
Title: Initiating a Community Conversation on the Future of the City Including

the Comprehensive Plan, Planned Community Zoning, Parking and Traffic
Strategies and Related Matters
From: City Manager
Lead Department: Planning and Community Environment
Recommendation
Staff recommends that Council conduct a study session to discuss initiation of an expanded
public dialog regarding the future of the city, including ongoing e fforts to update the City’s
Comprehensive Plan, re-examination of Planned Community (PC) district zoning, and other land
use and development issues.
Executive Summary
On November 12, 2013, Mayor Scharff and City Manager Keene removed two large
development projects from the Council’s agenda and scheduled this initial study session on the
future of the City. This study session provides an opportunity for public input and
Councilmember questions and comments regarding land use and development issues in the
City. Possible issues for discussion include:
 How should we initiate and engage in a robust public dialog about the future of the City,
especially as it relates to existing commercial corridors and Pedestrian and Transit
Oriented Development (PTOD) districts?
 How should this dialog relate to ongoing efforts to update the City’s Comprehensive
Plan and projects such as the Downtown Cap study, 27 University outreach, etc.?
 How should we re-examine the Planned Community (PC) process and address the
community’s concerns about the exchange of new development entitlements for public
benefits?
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 How should we ensure transparency, consistency, and predictability for development

applications that conform with current zoning?
 Which traffic and parking solutions can be implemented in the short term, and how will
the cumulative impacts analysis associated with the Comprehensive Plan Update inform
decision making in the long term?
 Are there other questions related to zoning and land use that should be considered
separately or in tandem with the Comprehensive Plan update?
At the closure of the study session, staff will attempt to summarize direction from the Council.
One or more action items will be brought back to the Council for formal direction early in the
2014.
Background
Palo Alto will be a vital, attractive place to live, work, and visit. The elements that make
Palo Alto a great community – its neighborhoods, shopping and employment centers,
civic uses, open spaces, and natural resources – will be strengthened and enhanced. The
diverse range of housing and work environments will be sustained and expanded to
create more choices for all income levels. All Palo Alto neighborhoods will be improved,
each to have public gathering spaces, essential services and pedestrian amenities, to
encourage less reliance on the automobile.
Vision Statement from the Palo Alto 1998-2010 Comprehensive Plan
The Comprehensive Plan is the City’s guiding planning document, setting forth the community’s
vision when it comes to land use and related issues. Each time an individual project or rezoning
is considered, that decision is required to be consistent with the policy framework of the Plan.
This does not mean that every decision is required to be consistent with every policy and
program of the Plan, but each must be consistent on balance with the Plan as a whole, and with
any mandatory policies of the Plan.
Palo Alto’s current comprehensive plan was adopted in 1998 and has served this community
well. It envisions a city of neighborhoods and a vision for the future that is expressed through
the major themes of the document:
 Building Community and Neighborhoods;

 Maintaining and Enhancing Community Character;
 Reducing Reliance on the Automobile;

 Meeting Housing Supply Challenges;
 Protecting and Repairing Natural Features;
 Meeting Residential and Commercial Needs, and
 Providing Responsive Governance and Regional Leadership
The Comprehensive Plan articulates key values, expressed through policies and action items
including such things as a limit on non-residential growth in the Downtown area (Program L-8)
and throughout the City (Policy L-8), promoting decisions that encourage walking, bicycling and
public transit use (Policy T-1), development of strategies to increase housing density and
diversity in appropriate locations (Policy H-2) and encouraging new businesses that meet the
City’s business and economic goals (Policy B-9).
In general, the Comprehensive Plan establishes a land use regime that is protective of low-
density residential neighborhoods (typically zoned R-1, R-2, and RMD) and open space areas. It
is supportive of commercial enterprises, but effectively targets growth and change to fully-
developed commercial areas such as Downtown, the California Avenue area, Stanford Shopping
Center and the Research Park, El Camino Real and interstitial areas comprising approximately
5% of the City.
The Comprehensive Plan also recognizes the challenges in providing diverse and high-quality
housing opportunities. Again, it is protective of existing residential neighborhoods, but
supportive of higher density in appropriate locations. The City has a long history of support for
affordable housing, including the adoption of an inclusionary housing ordinance in the mid-
1970s, the establishment of affordable housing impact fees, and support for local, state and
federal programs that help to preserve and enhance the City’s affordable housing supply. The
initial Housing Element adopted with the Comprehensive Plan and the revised Housing
Elements that have been adopted in conformance with State requirements since that time have
all contained policies and programs that address the housing challenges the City continues to
experience.
 Preparing concept plans for East Meadow Circle area and California Avenue area
and identify appropriate land use and zoning changes,
 Adequately mitigating impacts of increased housing on community services such as
parks, libraries and schools; and
 Addressing the City's commitment to climate protection and sustainability.
City Staff worked with the PTC between 2008 and 2010 to review the existing elements,
background reports on baseline growth topics, and information regarding the two concept area
plans.
In 2010, the PTC and Council held a joint study session to address the Comp Plan amendment
work plan, including the recommended approach to the Housing Element update. In addition,
the Council provided direction regarding updated growth projections, updates to the Comp
Plan structure, vision, goals, policies and program statements, and additional work regarding
review of the South El Camino Real Design Guidelines and LEED for neighborhood Development
(LEED-ND).
From 2010 to present, City staff and PTC sub-committees have met to review each element of
the Comp Plan. The Comp Plan subcommittee process has been effective in identifying
necessary changes to the Comp Plan including creating a clearer, cohesive and less redundant
policy document. The original work program to update the structure, vision, goals and program
statements has developed into a more robust update as a result of the subcommittee process.
This involved rearranging chapters and elements and substantially changing the format of the
existing plan. New policies and programs are included to clarify existing policies
and to accommodate new State requirements. As of November 2013, the PTC and
has programs
reviewed
and recommended inclusion of the following draft elements into the Comp Plan amendment:
 Housing
 Land Use
 Transportation
 Community Services & Facilities

Natural Environment
Work continues on the Business & Economics and Governance elements. It is expected that all
elements will have been reviewed by the PTC prior to the end of Q1 2014. Please see
Attachment A for more information regarding the ongoing Comprehensive Plan amendment
process.
Community Changes Since the Comprehensive Plan was Adopted

It’s obvious to most people that the economic, social, and environmental landscape has
changed significantly since the Comprehensive Plan was adopted in 1998. The City has
experienced boom and bust cycles in the economy, affecting employment, housing demand,
and office development. The City has been relatively well-positioned to adapt to these cycles
and although we’ve had to cope with lean budget years and reductions in city services, the
strength of our commercial sectors, residential property values, and school district
achievements have brought us through difficult times. As a result, the City overall enjoys a high-
level of resident, visitor and business community satisfaction.
Despite emergent concerns about traffic and parking (issues Palo Alto shares with other cities
across the Bay Area), citizens continue to rank Palo Alto very high in the annual City Survey
conducted by the National Research Service. Recently, Palo Alto was named #1 on the Top 100
Best Places to Live by Livability.com, a national website that ranks quality of life amenities of
America’s small and mid-sized cities. It certainly could be argued that the changes Palo Alto has
experienced over the past 15 years have contributed to the success and the challenges our city
continues to experience. The following charts illustrate some of the change we’ve experienced:
City o Palo lto Households and Housing Units

30,000
obs within City o Palo lto

100000
XJOO()
70000
60000
5OOJ )
40000
xl
70000
10000
7000 7005 2010 2011

Horizon Years
Source: City of Palo Alto Traffic Counts for 1999 and 2013
Recent Development and Community Concerns

Palo Alto has successfully navigated out of the “Great Recession” and is now facing new
challenges and concerns regarding the pace of development, although development over the
last 15 years has not exceeded the two non-residential development limits adopted as part of
the 1998 Comprehensive Plan, as shown below. Also, most of the pending development
applications that can be characterized as “major” proposals, in the sense that they would add
10,000 gross square feet or more, conform to the zoning regulations that were established to
implement the Comprehensive Plan.
1989 – 2013 Non-Residential Development within the 1989 Land Use Study Areas
Total Development Potential – Growth Monitoring 3,257,900 sq. ft.

Net Non-Residential Square Feet Gained thru August 2013 1,570,033 sq. ft.
Remaining Square feet in Growth Monitoring 1,687,867 sq. ft.
Commercial Downtown Zone District Non-Residential Growth Cap
Commercial Downtown Zoning Districts Growth Cap 350,000 sq. ft.
Net Non-Residential Square Feet Gained thru August 2013 256,939 sq. ft.
Remaining Square feet in Growth Monitoring 93,061 sq. ft.
In-process Major Development Projects as of November 12, 2013

Address Project Description Status PC?
640 WAVERLEY Prelim ARB mixed-use building with Zoning issues under review no
two dwelling units and commercial
area of 10,463 sf (demo existing one
story).
500 UNIVERSITY AV New three-story building (26,806 sf First and second ARB Prelim no
replacing 15,899 sf) with ground floor completed, ARB 12/5/13
retail, two floors of office and two
levels below grade parking.
2500 EL CAMINO New four-story mixed use project with ARB Prelim completed; formal no
REAL 70 residential units (one, two and three app received 11/7
bedroom units) of BMR rental housing
and approximately 7,300 square feet of
commercial space.
261 HAMILTON Addition to University Arts Building Formal application submitted no

6,900 sf; generating 15K TDRs without
parking exceptions.
636 MIDDLEFIELD Prelim ARB for three residential units. ARB Prelim to be scheduled no
777 WELCH Prelim ARB for 22,820 sf of new ARB Prelim scheduled 11/21/13 no
construction (demo 3,048 sf).
429 UNIVERSITY Prelim ARB for one dwelling unit and ARB Prelim 11/7/13 no
16,500 sf commercial (existing 6,600
sf).
180 EL CAMINO REAL Prelim ARB for 133,580 sf retail and ARB Prelim 10/3/13 no
renovation (replacing same sf).
385 SHERMAN Prelim ARB for 55,566 sf mixed use ARB Prelim 12/5/13 no
building.
2555 PARK Formal ARB for 23,269 sf office; demo Historic review initiated no
existing building.
2609 ALMA Prelim ARB for four-unit multi-family ARB Prelim January 2014 no
residential condos.
In-process Major Development Projects as of November 12, 2013

Address Project Description Status PC?
441 PAGE MILL RD New 32,524 sf mixed use building Formal submittal of a Site and no
(21,540 sf commercial and 8 residential Design application on 7/29/13
units) and one level of below grade
parking.
2609 ALMA Preliminary Architectural Review Board Prelim ARB no

review of a new four unit multifamily
residential condominium project.
3877 ECR Preliminary ARB review for new two Prelim ARB no
story mixed use project in at the
Compadres site. 18 dwelling units and
3,000 sf. commercial
395 PAGE MILL ROAD Planned Community and Comp Plan PTC Initiated PC 7/10/13; ARB yes
AND 3045 PARK Amendment for New Office Buildings, review 9/19/13. Applicant
BLVD Structured Parking and Public Safety holding community meetings
Building
1050 PAGE MILL Prelim ARB for a 284,000 sf. office ARB 12/5/13 no
ROAD building
816 SAN ANTONIO Minor ARB approval to allow a 8,200 Notice of incomplete issued to no
AV square foot structure for Hertz Rent-a- applicant
Car.
240 HAMILTON AV Major ARB and variance to allow a new ARB Approved 7/18/13, no
15,000 sf mixed use building. appealed
1875 EMBARCADERO Site and Design Review for the golf Pending Council review PTC no
RD course reconfiguration project. and ARB completed
3980 EL CAMINO PC Application for conversion of Buena Project under review yes
REAL APT 001 Vista Mobile Home Park.
2755 EL CAMINO PC for a 19,563 sf, four story mixed use 9/11/13 PTC Planned yes
REAL building with three stories of below Community initiation continued
grade parking. CC prelim was February to date uncertain
2013.
The development described above represents a portion of the total number of projects under
review by Planning staff and other City representatives; it includes projects that would do any
of the following: add over 5,000 square feet of net new floor area, require design review under
the Site & Design process, consist of a major subdivision and/or a Preliminary Review of a major
project. As illustrated in the charts in the preceding section, the Development Services
Department issues a significant number of building permits each year, with total building
permit valuation approaching $600 million in FY 2013.
New developments typically represent an increased intensity of use at each site as compared to
the existing conditions. This increased intensity of use can place additional demands on the
roadway network and automobile parking infrastructure. Citizens have clearly communicated
their concerns regarding the perceived increase in automobile traffic, the reduction of available
parking spaces in public-owned lots, automobile parking intrusion into residential
neighborhoods adjacent to commercial areas, and overall difficulty in moving through

intersections due to traffic congestion.
As illustrated earlier, daily traffic volumes ebb and flow over time, and with the end of the
recession, volumes are approaching levels attained during the Dot-Com boom. In addition,
local and regional traffic congestion is noticeably worse for drivers, whether they’re commuting
long distances, or making short local trips. Complaints about traffic and parking are widespread
across the Bay Area.
Architecture & Design

A relatively recent community concern engendered by ongoing development activity relates to
the architecture and design of newly constructed buildings. Some community members have
complained that the Architectural Review Standards, contained within the Municipal Code, are
not being applied strictly and evenly and as a result, new buildings do not meet the level of
architectural quality that Palo Alto expects.
This concern about design compatibility is often expressed as a critique of individual projects
that have been approved since the adoption of the 1998-2010 Comprehensive Plan. Some of
these projects are listed in the following table:
Sample of Significant Projects Approved Since Adoption of 1998-2010 Comprehensive Plan
Projects Zoning Year Approved
800 High Street- multi-family residential PC 2003
Vantage of Palo Alto ROLM 2003
Echelon- multi-family residential, East Meadow Drive ROLM 2004
Downtown parking garages (High Street & Bryant) PF/PC 2000
Hyatt Ricky’s/Arbor Real- multi-family residential CS/CN/R- 2005

1/RM-15
TKCJL- community center and residential PC 2006
Altaire- Fabian Way, multi-family residential, affordable housing PC 2006
801 Alma- affordable housing RT-50 2009
Sterling Park multi-family residential, E. Bayshore Rd. ROLM 2007
Elks Lodge/Rosewood Gate- multi-family residential and private lodge RM- 2007
15/RM-
30
Palo Alto Bowl Site Redevelopment- hotel and multi-family residential CS 2009
Alma Plaza- retail and multi-family residential PC 2007
SUMC- hospitals modernization and expansion Hospital 2011
Edgewood Plaza- retail redevelopment PC 2013
101 Lytton- commercial office PC 2011
Source: Planning and Community Environment Department
By comparison, there has been relatively little criticism of the post-war strip mall design of El
Camino Real, for example, or other mediocre architecture from earlier periods.
Most importantly, discussion of some existing standards and their rigid application (height limit,
for example) can contribute to poorer building design when the density and FAR (floor area
ratio) of a project remains unchanged. A discussion of design as an integrated systems
challenge and not simply a collection of individual standards and requirements could generate
an important and needed conversation and improve design.
Land Use & Transportation Studies

In addition to considering and approving individual development applications that are
consistent with the 1998 Comprehensive Plan, the City has undertaken numerous land use and
transportation studies since the adoption of the Comprehensive Plan:
Land Use and Transportation Studies Completed/In-progress since Adoption of 1998-2010

Comprehensive Plan
Projects Completed / In-progress
Downtown Cap Study In-progress

Phase 1 data
collection/analysis
completion: May 2014
Phase 2 policy development
and CEQA completion:
October 2014
Comprehensive Plan Amendment In-progress
Completion Q2 2015
 Transportation Element- Council review Q1 2014

 Citywide Transportation Model- Council review Q1 2014
 Land Use Element- Council review Q1 2014
 California Avenue Concept Area Plan PTC Review 11/20

East Meadow Circle/Fabian Way Concept Area Plan Council approved Jan 2012
2014-2022 Housing Element In-progress

Completion: Q1 2015
Transportation survey Completed; to be

Transmitted to Council
12/9/13
Residential Permit Parking (RPP) Programs In-progress,
scheduled for Council

discussion on 12/16/13
Parking studies In-progress,
status will be provided at
the RPP Council discussion
on 12/16/13
California Avenue Streetscape In-progress,
currently out to bid
High Speed Rail/CalTrain Modernization In-progress
El Camino Real Grand Boulevard Initiative In-progress
Sidewalk Width Colleague’s Memo Implementation In progress,

ARB & PTC input Q1 2014
Urban Forest Master Plan In-progress
Completion June 2014
Parks & Recreation Master Plan In-progress
Arts & Innovation District, 27 University On-hold,

pending outcome of the
12/2/13 study session
1999-2006 Housing Element 2003
South of Forest Area Coordinated Area Plan I & II 2003- 2005
El Camino Real Design Guidelines 2005
Adopted by ARB in 2002 and incorporated in the Municipal Code in 2005)
El Camino Real Master Plan Study 2007

Zoning Ordinance Update 2007
Baylands Master Plan 2009
Bicycle and Pedestrian Master Plan 2012
Sustainable Communities Strategy, Plan Bay Area 2013

2007-2014 Housing Element 2013
Rail Corridor Study 2013

Source: Planning and Community Environment Department
The renewed pace of development since the end of the recession, daily traffic and parking
conditions, and the number of concurrent planning studies, have resulted in many people
feeling that there is no coherent vision or narrative connecting individual project review and
the various planning efforts underway. This feeling has led to significant discontent with the
Planned Community (PC) district rezoning process as well some concerns that the
Comprehensive Plan is being ignored or has lost its currency.
Planned Community Development

Rezoning to a PC district follows a set of procedures and standards, which are prescribed in
Chapter 18.38 of the Palo Alto Municipal Code (PAMC). The PC process begins with PTC review
of the concept plans, development program statement and draft development schedule. If the
PTC recommends initiating the PC request, the development plan, site plan, landscape plan and
design plans are submitted to the ARB for design review in the same manner as any commercial
or mixed-use project. The environmental document is prepared and circulated prior to ARB
consideration. The development plan recommended for approval by the ARB is then returned
to the PTC, together with a draft PC ordinance and environmental document, for review and
recommendation to the City Council. The PC ordinance would identify the permitted and
conditionally permitted uses and site improvements, as well as a schedule for completion of the
project. The Council may approve a PC zone change only if it finds that:
1. The site is so situated, and the use or uses proposed for the site are of such
characteristics that the application of general districts or combining districts will
not provide sufficient flexibility to allow the proposed development.
2. Development of the site under the provisions of the PC planned community
district will result

the regulations of in publicdistricts
general benefitsornot otherwisedistricts.
combining attainable by application
In make of
the findings
required by this section, the Planning and Transportation Commission and City
Council, as appropriate, shall specifically cite the public benefits expected to
result from use of the planned community district.
site, BMR units

PC-4782 33 Encina Avenue Opportunity 03/17/2003 Services center for
Center homeless, BMR units.
PC-4831 2701 El Camino Real Sunrise Assisted 06/21/2004 Redevelopment of
Living underutilized site, senior
assisted living units, BMR
units for 12 persons,
publically accessible open
space, $20K for street trees
at ECR, art, Avenidas
meeting space
PC-4843 690 San Antonio Auto dealership 10/04/2004 None listed on original 1971
Avenue design features; ordinance.
PC-2592
amendment to
previously
approved PC
PC-4846 1730 Embarcadero Auto dealership 10/04/2004 None listed on original 1970
Road design features; ordinance.
PC-2554
amendment to
previously
approved PC
PC-4847 1766 Embarcadero Auto dealership 10/04/2004 None listed on original 1982
Road design features; ordinance.
PC-3350
amendment to
previously
approved PC
PC-4917 3895 Fabian Way Altaire Market 10/10/2006 Alta Torre 100% BMR senior
Rate Condos / apartment units
Alta Torre Senior
Apts.
PC-4918 901 San Taube-Koret 10/10/2006 Shared-use community
Antonio/3921 Fabian Campus for facility, BMR senior assisted
Way Jewish Life living units
PC-4956 3388-3557 Alma Alma Plaza 06/18/2007 15K sqft grocery store as a
Village Circle permanent use, park,
community room, 14-BMR
units
PC-4995 449-453 Addison Creation of a flag 03/10/2008 Allows preservation of two
Avenue lot historic residences
PC-5034 488 West Charleston TreeHouse Apts. 03/30/2009 100% BMR project, 35 units
Road
PC-5069 2180 El Camino Real JJ&F Market 01/11/2010 8,000 sqft grocery store,
four BMR units, $5K tree
planting on ECR
PC-5116 4025-4075 El Camino Palo Alto 04/21/2011 $100K to Avenidas, rental
Way Commons, senior assisted housing,
residential pedestrian/bus stop
addition improvements
PC-5150 2060 Channing Edgewood 04/09/12 Preservation of historic
Avenue Shopping Center grocery store, public park, 3
charging stations, historic
preservation payment
PC-5158 101 Lytton Avenue 101 Lytton 06/11/12 4 charging stations, 1 zip car
Commercial space, parking study
Office payments of $310K, BMR
non-profit rental space, 8
surface parking spaces
Discussion
Comprehensive Plan Update

Using the work of the PTC on the Comprehensive Plan Amendment as a foundation, Staff
suggests that now may be the appropriate time to initiate a renewed community engagement
effort around the Comprehensive Plan’s vision and priorities. A visioning exercise would
examine goals and priorities related to community character, land development, traffic and
parking, and the preservation and conservation of valuable resources, and could be conducted
concurrently with a comprehensive cumulative impacts analysis in the form of a program-level
Environmental Impact Report (EIR). Specific questions that could be framed for the public’s
consideration include:
 Should the City increase, decrease or maintain the non-residential development caps
currently in-place for Downtown and the 1986 land use study areas?
 Are there specific areas or development sites that should be the focus of change, so as
to protect and preserve other areas?
 Are there specific transportation investments that are needed in the near term or long
term to improve mobility, preserve the City’s neighborhoods, and perp etuate a robust
economy?
At the time of the work plan initiation in 2006, the City Council did not include a visioning
exercise as part of the Comprehensive Plan Amendment. However, given the length of time it
has taken to amend the Comprehensive Plan and the significant changes that have occurred
since the adoption of the existing Comprehensive plan in 1998, Council may find it appropriate
to conduct a visioning exercise at this time. The outcome of the visioning exercise would be to
inform the Comprehensive Plan Amendment process and validate or alter the work that has
been achieved thus far.
The visioning exercise will require additional time and resources, but can happen concurrently
with preparation of a program-level EIR, which can provide the kind of overarching cumulative
impacts analysis that members of the community are requesting and also propose a series of
mitigating actions and programs for incorporation into the plan.
The graphic below illustrates how the community visioning process and the program-EIR can
combine to inform the final Comprehensive Plan amendment that is proposed for adoption by
the City Council. If Council is amenable to this overall approach, staff would return to Council
with a work plan and schedule early in 2014.
The Council will also have to decide which implementing ordinances and practices can be
tackled concurrently with the Comprehensive Plan Amendment, and which should be reserved
for future action. For example, the Council could seek to reform the Planned Community
zoning process ahead of the Comprehensive Plan Update or as part of that process. The Council
could also initiate the reform themselves, or request the PTC formulate a recommendation
first.
One important issue to note is that the Housing Element of the Comprehensive Plan will have
to be updated on a separate schedule due to requirements in State law. Specifically, an update

for the planning period 2014-2022 must be completed and adopted in January 2015 or the City
will face significant penalties. The most notable penalty would be a requirement to update the
element again in four years, rather than in eight years as provided for in SB 375 and companion
legislation.
Planned Community Zoning

Planning staff believes that the Planned Community zoning tool can be re-examined and refined
to better achieve its original intent. As stated in the Specific Purposes section of PC regulations,
“The planned community

developments district
which are of is particularly
substantial intended
public benefit, andfor unified,
which comprehensively
conform planned
with an enhance the
policies and programs of the Palo Alto Comprehensive Plan.”
There may be intersections between this effort and the Comprehensive Plan update, and
possible refinements can range from wholesale reform to adjustments that:
 Specifically define the types of projects that may apply for a PC district;
 Create minimum lot sizes that would be eligible for PC districts;

Establish a buffer (a minimum distance) between a proposed PC district and existing
low-density residential districts;
 Create a menu of public benefits that would be allowed under a PC, and/or
 Establish a mechanism for mitigation and condition monitoring.
Pipeline Projects
The Council may decide whether to entertain rezoning proposals -- including proposals for the
use of the PC district – prior to reforming the PC zoning process and/or completing the
Comprehensive Plan update. Logically, most such proposals would be deferred, however there
may be special circumstances in which the Council may wish to consider a rezoning proposal
and the Council could choose to articulate related criteria or provide other guidance to
property owners.
This community has long valued property rights of landowners to develop in conformance with
existing zoning. Both State law (State Permit Streamlining Act) and local law prescribe time
limits time limits for processing entitlements for zoning compliant projects. Also, the ability of a
local jurisdiction to efficiently and predictably process building permits and other entitlements
that are consistent with its zoning regulations typically helps to define a positive business
climate.
Palo Alto takes pride in a business climate that supports innovation and entrepreneurship; this
climate would be challenging to maintain if proposals that are consistent with current zoning
regulations are deferred. There are also legal hurdles associated with deferring certain zoning
compliant projects. On the other hand, Council has much more flexibility in deferring
consideration of discretionary zoning decisions like PC’s or other up-zoning requests.
The need to process development proposals that are consistent with current zoning regulations
at thefor
need same time thatand
consistency thetransparency.
City is working on community-wide
Applicants and membersplanning issues,should
of the public suggests the
clearly
understand the existing regulations and standards by which a project is being evaluated, how
direct, indirect, and cumulative impacts of the project are assessed, and how the project relates
to the Comprehensive Plan update and other planning and transportation initiatives that are
underway.
While Staff is suggesting a visioning initiative with a strong emphasis on the Comprehensive
Plan it is important to recognize that existing zoning on all properties in the city is the most
concrete form of a city’s land use plan and placing restrictions on the use of that zoning (or
down zoning) is something that requires extensive engagement with property owners and
others in the community. This is a fact that is frequently misunderstood or ignored by some
members of the public when the Council considers applications under existing zoning.
Traffic and Parking

Much of the community’s concerns regarding PC zonin g and the cumulative impacts of
development in general relates to parking and traffic issues. The Council will be getting an
update on aspects of these issues in the coming weeks as staff brings forward a study session
regarding Transportation Demand Management (TDM) on December 9th and a framework for
th
Residential Permit Parking on December 16 . In this context, staff will also summarize
initiatives to expand parking supplies.
Also, on December 12th, staff will be providing the PTC with a summary of the traffic analysis
methodology that is used to assess project-specific and cumulative impacts, including the
adjustments that are being made to reflect an updated travel demand model. Following
Commission questions and comments, staff will forward a revised summary/explanation to the
Council for review.
Timeline
The City Council has initiated a community outreach plan for a discussion of the City’s Core
Values, and has requested that the public outreach component be completed in time for
Council’s yearly retreat in Q1 2014 where Council sets its priorities for the upcoming year. The
PTC is scheduled to provide recommendations regarding elements of the Comprehensive Plan
amendment in the same timeframe.
The Council may wish to use both events to preface a community engagement/visioning
process about community character, land development, traffic and parking, and other topics,
and to direct this community engagement effort to be completed concurrently with
preparation of the program-level EIR for the Comprehensive Plan update. The Council may also
wish to revise the City’s PC zoning process in 2014, and the City is required to update the
Housing Element of its Comprehensive Plan by the end of January 2015.
As a prelude to any revision process on PC’s, the City Manager recommends that all current PC
projects under consideration be stopped and put on hold for a sufficient period of time to allow
this comprehensive review of our plans and policies to unfold.
At the closure of the study session, staff will attempt to summarize direction from the Council.
One or more related action items will be brought back to the Council for formal direction early
in the 2014.
Resource Impact
Resources to conduct a City-wide visioning process will vary depening upon the scope of the
exercise. Resources to review and reform the PC zoning process will depend on the Council’s
desired approach and schedule. The City Manager intends to restructure existing staffing to
ensure an extensive community engagement initiative. This may include additional resource
investments. The need for more planning capacity and staff will be a subject of the upcoming
budget review and City Manager recommendations on the Budget. Future agenda items will
outline alternative approaches and resources in detail, following Council’s study session.
Policy Implications
A community visioning exercise and cumulative impacts analysis (in the form of a program-level
EIR) can result in an updated Comprehensive Plan with broad community support. At the same
time, reforms to the PC zoning process can improve the public’s perception of City government
by focusing on ways to improve transparency and predictability, and updating the City’s
Housing Element can ensure continued compliance with State housing laws. All three efforts,
as well as ongoing initiatives related to traffic and parking, can honor the policies and programs
of the existing Comprehensive Plan, including Program G-2: Periodically assess the need for
citizen input on various policy issues and appoint advisory bodies and ad hoc committees as
needed, and Policy G-11: Encourage the development of new planning processes that
emphasizes a collaborative exchange of ideas. Retain City Council authority over decision-
making in these processes.
Environmental Review
Study sessions by definition are not “projects” under CEQA, because no actions will be taken.
When staff returns for Council direction regarding the issues discussed, the agenda report will
provide information about the CEQA process for zoning and Comprehensive Plan changes that
are considered in the future.
Attachments:
 Attachment A: Comprehensive Plan Update Overview (DOCX)
Land Use Element
L1.1 POLICY Require that land use policies be consistent with Palo Alto’s Climate Protection
Plan, striving to achieve and exceed target reductions in greenhouse gas
emission levels set forth by City Council goals from City operations and
community emissions. (New Policy)
L2.9 POLICY Require infrastructure improvements to serve all areas of the City fairly, address
the most urgent needs, and accommodate future growth. (New Policy)
L3.11.1 PROGRAM Introduce measures to counteract the loss of retail activities in Palo
Alto’s Neighborhood Centers. (New Program)
L3.18 POLICY Encourage retention and enhancement of research and development (R&D),
office, light industrial, and commercial development consistent with the East
Meadow Circle Concept Plan ensure that new and existing development is
compatible and includes appropriate transitions to nearby single- and multi-
family development. (New Policy)
Transportation Element
T1.1 POLICY Reduce greenhouse gas emissions associated with transportation by reducing
vehicle miles traveled and per-mile emissions through use of vehicle
technologies to meet the City’s goals for greenhouse gas reductions by 2020.
(New Policy)
T4.1.1 PROGRAM Develop a Parking Management Program for both the

University/Downtown and California Avenue business districts that supports
alternative transportation modes. (New Program)
T4.3.1 PROGRAM Study parking pricing and congestion pricing options for on-off-street
parking in the Downtown/University Avenue and California Avenue business
districts that is responsive to the market and results in approximately 85%
parking occupancy. As part of creating this system, review the existing
Downtown parking system to ensure it is still consistent with the overall
approach to parking in the Downtown, and includes mechanisms that allow
merchants to defray parking fees for their customers. (New Program)
T4.5.1 PROGRAM Review on-street parking availability in residential neighborhoods

adjacent to business districts to determine how it is used during business and
non-business hours. Consider allowing designated disabled on-street parking
upon resident request when conducting this review. (New Program)
T4.5.2 PROGRAM Develop a program to implement new residential permit parking

districts to preserve neighborhood quality of life. (New Program)
Community Services and Facilities Element
C1.3 POLICY The City’s community services should be a catalyst in creating a culture of health,
wellbeing and active living in our community. It shall contribute to the
intellectual physical and social health of the community by providing
opportunities for learning, expression and social interaction for all ages at our
libraries, community facilities, parks and cultural centers. (New Policy)
C1.4 POLICY Incorporate the “Developmental Assets” approach into the City’s planning,
development, implementation and evaluation of programs and services for
children and youth. (New Policy)
C1.6 POLICY Develop strategies to help the community identify and combat depression,
isolation, stress and other mental health issues. (New Policy)
Natural and Urban Environment and Safety Element
N2.1 POLICY Achieve and exceed City Council targeted goals for reductions in greenhouse gas
emission levels from City operations and community emissions. (New Policy)
N2.3 POLICY Pursue the goal of achieving zero net energy homes for all new detached or
single-family residences by 2025. (New Policy)
N3.5 POLICY Encourage renewable energy use by continuing to implement a dynamic 100%
carbon neutral Renewable Portfolio Standard for electric service. (New Policy)
N8.10 POLICY Regularly review the adequacy of law enforcement services and emergency
services in the city. Plan and develop law enforcement infrastructure and
technology according to overall need and the growth within the City. (New
Policy)
Housing Element
H3.1.10 PROGRAM Adopt a revised density bonus ordinance that allows up to a maximum
zoning increase of 35 percent in density and grants up to three concessions or
incentives. The density bonus ordinance will meet State standards for the
provision of housing units for very low- and lower-income renters, seniors and
moderate-income condominium buyers in compliance with
Government Code Section 65915, et seq. (New Program)
H 2.2.6 PROGRAM Amend the Zoning Code to create zoning incentives that encourage
development on and consolidation of smaller lots, such as development review
streamlining, reduction in required parking for smaller units, setback
modifications, or graduated density when consolidated lots are
over one-half acre. (New Program)
The intent of City staff and the PTC is to honor and maintain the themes and values described in
the existing Comprehensive Plan, repeated here:
 Building Community and Neighborhoods;

 Maintaining and Enhancing Community Character;

Reducing Reliance on the Automobile;
 Meeting Housing Supply Challenges;
 Protecting and Repairing Natural Features;
 Meeting Residential and Commercial Needs, and
 Providing Responsive Governance and Regional Leadership
and adding additional themes:
 Adapting to climate change

 Protecting neighborhood-serving retail

Infrastructure management
 Health and well-being of our residents

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8/13/2019 City of Palo Alto City Staﬀ Report On future of Palo Alto (2013)

City of Palo Alto (ID # 4294)

Report Type: Study Session Meeting Date: 12/2/2013

Title: Initiating a Community Conversation on the Future of the City Including

From: City Manager

Lead Department: Planning and Community Environment

City of Palo Alto Page 1

 How should we ensure transparency, consistency, and predictability for development

Vision Statement from the Palo Alto 1998-2010 Comprehensive Plan

 Building Community and Neighborhoods;

City of Palo Alto Page 2

 Reducing Reliance on the Automobile;

City of Palo Alto Page 3

City of Palo Alto Page 5

Community Changes Since the Comprehensive Plan was Adopted

City of Palo Alto Page 6

City o Palo lto Households and Housing Units

obs within City o Palo lto

7000 7005 2010 2011

City of Palo Alto Page 7

City of Palo Alto Page 8

Recent Development and Community Concerns

City of Palo Alto Page 10

Total Development Potential – Growth Monitoring 3,257,900 sq. ft.

City of Palo Alto Page 11

Commercial Downtown Zone District Non-Residential Growth Cap

Commercial Downtown Zoning Districts Growth Cap 350,000 sq. ft.

Remaining Square feet in Growth Monitoring 93,061 sq. ft.

City of Palo Alto Page 12

In-process Major Development Projects as of November 12, 2013

261 HAMILTON Addition to University Arts Building Formal application submitted no

City of Palo Alto Page 13

In-process Major Development Projects as of November 12, 2013

2609 ALMA Preliminary Architectural Review Board Prelim ARB no

City of Palo Alto Page 14

neighborhoods adjacent to commercial areas, and overall difficulty in moving through

Architecture & Design

these projects are listed in the following table:

City of Palo Alto Page 15

Sample of Significant Projects Approved Since Adoption of 1998-2010 Comprehensive Plan

Projects Zoning Year Approved

800 High Street- multi-family residential PC 2003

Vantage of Palo Alto ROLM 2003

Echelon- multi-family residential, East Meadow Drive ROLM 2004

Downtown parking garages (High Street & Bryant) PF/PC 2000

Hyatt Ricky’s/Arbor Real- multi-family residential CS/CN/R- 2005

TKCJL- community center and residential PC 2006

Altaire- Fabian Way, multi-family residential, affordable housing PC 2006

801 Alma- affordable housing RT-50 2009

Sterling Park multi-family residential, E. Bayshore Rd. ROLM 2007

Alma Plaza- retail and multi-family residential PC 2007

SUMC- hospitals modernization and expansion Hospital 2011

Edgewood Plaza- retail redevelopment PC 2013

101 Lytton- commercial office PC 2011

Source: Planning and Community Environment Department

City of Palo Alto Page 16

Land Use & Transportation Studies

Land Use and Transportation Studies Completed/In-progress since Adoption of 1998-2010

Projects Completed / In-progress