The proposed California Avenue Area Concept Plan seeks to create a "unified vision" for the future development of the area bounded by El Camino Real, Alma Street, Lambert Avenue and Cambridge Avenue. Planning has been in the works since 2006, when the council first identified the area as ripe for change. But during a wide-ranging discussion Monday, the current council struggled to find a consensus about what exactly this change should look like. Some members called for more housing; others advocated to protect retail space. One characterized the concept plan as a proposal that would dramatically densify the area and would need far more consideration before official adoption.
The council did agree on two aspects, however. One was that the plan, despite years of public hearings and the Planning and Transportation Commission's recent approval, isn't quite ready for prime time. Council members expect to debate it further on May 5 as part of a broader discussion of the city's Comprehensive Plan, and most likely at another meeting after that.
The council also agreed to apply for a grant to pursue a master plan for the area around Fry's Electronics, a subset of the business district. Defined by Lambert, El Camino, Park Boulevard and Olive Avenue, the subarea is one of the major wildcards in the concept plan.
The specific property where Fry's is located changed hands in 2011, and the council has since expressed concern about Fry's leaving and the city having minimal control over what the landowners could develop. Currently, the property is zoned for multi-family housing.
In addition to the Fry's store, the subarea includes professional offices, commercial and retail establishments and single-family homes.
The master plan, which is expected to cost between $200,000 and $300,000, would consider a variety of possible land uses for the area. The goal, as stated in the larger concept plan, is to foster over the long-term the "transformation of the Fry's site subarea into a walkable, human-scale mixed-use neighborhood that includes ample amenities."
But even the decision to apply for a grant came after an extensive debate, with several council members repeatedly seeking assurance from staff that applying for the funds from the Santa Clara Valley Transportation Authority would not lock the city into any kind of a land-use decision. Their concern stemmed from recent grants that the city received that carried with them specific — and to some council members, unexpected — requirements.
The debate over California Avenue's future comes at a time of major changes in the area, with dense new developments at 195 Page Mill Road, 260 California Ave. and 2640 Birch St. currently under construction and a nearby project at 3159 El Camino Real recently winning approval.
Though the proposed concept plan stresses the need to preserve existing neighborhoods, it also advocates for denser development, particularly mixed-use buildings that include small housing units. The overall plan splits the area into three subsections: the eclectic business district around California Avenue, the tech-heavy commercial area on Park Boulevard and the site around Fry's. While the concept plan proposes to rezone only the Fry's property (to "mixed-use," enabling more flexibility), it also encourages development on California Avenue "at the higher end of the allowed density range."
Similarly, it seeks to encourage more technology-focused firms to set up shop on Park and includes a policy to encourage mixed-use developments with research space, offices and small residences. Much like on California Avenue, developments in this new "technology corridor" would be encouraged "at the higher end of the allowed density range," provided they're consistent with the city's design standards.
All the talk of greater density proved to be a hard sell with council members Pat Burt and Karen Holman, both of whom argued that far more deliberation is needed before the council goes along with the plan.
"We have not had an opportunity to look at the significance of this very large upzoning for this area and it needs much more consideration," Burt said of the proposed technology corridor on Park.
Holman concurred and argued that the council needs more time to review and revise the concept plan.
"This really reads to me like a redevelopment document," Holman said.
Burt likened the concept plan to a recently withdrawn proposal for 395 Page Mill, which at 311,000 square feet far exceeded the city's zoning regulations and drew heavy criticism from the surrounding neighborhoods for its ambitious scale.
"We thought we were stepping over a cliff at the Jay Paul (Company) site," Burt said. "We're running over the Grand Canyon potentially on approving these major upzonings without real consideration."
Burt and Holman were also skeptical about the Fry's grant, at least until Planning Director Hillary Gitelman offered them repeated assurances that the grant funds would not obligate the city to pursue any policies that the council doesn't support.
Once adopted, the vision for California Avenue would become part of the city's Comprehensive Plan, its guiding land-use document. A report from the Department of Planning and Community Environment notes that the concept plan aims "to identify appropriate development intensities, the potential for additional housing, and plan for retention and enhancement of retail/service opportunities and improved pedestrian and bicycle connections in the California Avenue area."
Several residents attended the meeting to laud the plan, which also advocates for various pedestrian- and bike-safety improvements on Park Boulevard and better paths between the Fry's site and El Camino. Eric Rosenblum and Sandra Slater both praised it for encouraging density near a prominent transit corridor, a strategy that could encourage commuters to take alternative transportation.
"I think it's a win-win and an opportunity for the council to look at something that can be really exciting and, in a way, a beacon for how Palo Alto might look at future developments," Slater told the council.
Councilwoman Gail Price agreed and said the concept plan offers the city a valuable chance to manage change.
"I think it provides us with a terrific opportunity — in conjunction with the 'Our Palo Alto' discussion — to become more refined and more thoughtful about the kinds of decisions we're in the process of making," Price said, referring to the city's new effort to engage the community in a two-year discussion about Palo Alto's future.
One aspect that the council generally agreed on is that housing should feature prominently in the future of the Fry's site. Councilman Greg Scharff advocated for rental housing in particular, arguing that commuters are more likely to rent apartments near their jobs than buy homes.
Greg Schmid, meanwhile, said the Fry's site is one of the few places where the council can realize "smart development," a mix of retail, commercial and residential uses clustered near a transit site. Schmid said such a vision is "what modern urban design is all about." The city, Schmid said, needs to quickly answer the question of what percentage of the city's housing mandate should be targeted for his area.
"I think people tonight have made a convincing case that this is one of the best places in town," Schmid said.
The new Fry's document adds yet another layer to the Russian nesting doll of plans Palo Alto is currently pursuing. The city is still updating the Comprehensive Plan, a nearly decade-long process that staff expects to complete in late 2015. On a parallel track, planners are pushing ahead with a new Housing Element, a state-mandated chapter of the Comprehensive Plan that lays out the city's housing policies and identifies sites that could accommodate new residential units. The California Avenue concept plan (as well as a similar concept plan for the East Meadow Circle area) would also be added to the Comprehensive Plan.
Talk about it
What should the vision be for the section of town around Fry's Electronics? Discuss your ideas on Town Square, the community online forum at www.PaloAltoOnline.com.