TO: HONORABLE CITY COUNCIL

FROM: CITY MANAGER DEPARTMENT: PLANNING AND

COMMUNITY ENVIRONMENT

DATE: OCTOBER 4, 2010 CMR: 367:10

REPORT TYPE: STUDY SESSION

SUBJECT: Status Report on the East Meadow Circle/Fabian Way and California
Avenue/Fry's Area Concept Plans

EXECUTIVE SUMMARY
The purpose of the study session
is for staff to update the City
Council on the progress in
preparation of the East Meadow
Circle/Fabian Way Area and
California Avenue/Fry's Area
Concept Plans and to allow an
opportunity for the City Council
provide direction as appropriate.
The Concept Plans are part of the
City's Comprehensive Plan
update, which is currently in
process. The intent of the East
Meadow Circle concept plan is to
evaluate retention of commercial
uses, limitations on new
residential development,
providing support services and
enhancement of pedestrian and
bicycle connections. The intent
of the California Avenue/Fry's area concept plan is to evaluate alternative development
intensities, potential for housing increases, preferred uses for the Fry's site, and enhanced
pedestrian and bicycle connections. Following this study session, the two concept plans will
be heard by the Planning and Transportation Commission for its recommendations. The
items will then return to the City Council for direction to evaluate the plans in the
Comprehensive Plan Environmental Impact Report.

CMR : 367 :10 Page 1 of 12

PURPOSE AND RECOMMENDATION
The purpose of this report is to inform the Council about the status of the East Meadow
Circle/Fabian Way Area and California Avenue/Fry's Area Concept Plans - currently under
preparation as part of the Comprehensive Plan Amendment. Staff recommends that the
Council review the general direction of both plans and provide comments to staff.

BACKGROUND
The City is in the process of updating its Comprehensive Plan to ensure that its land use
designations and policies support projected needs and the City's land use visions through
2020. To help evaluate where specific land use designation and policy changes may bc
needed, in 2006, the Council directed staffto conduct studies and develop concept plans for
two areas: I) the East Meadow Circle/ Fabian Way area and 2) the California Avenue/Fry's
area.
The East Meadow Circle/Fabian Way area was initially identified for study because of
concerns regarding land use changes from industrial to residential that have taken place in
the area since 2000.
The goals of the study have been to:
I. Identify appropriate uses and type of development that would be desirable in the area
2. Update land use designations and policies to reflect and encourage those uses
The focus of the study has been to:
I. Evaluate the desirability/undesirability of additional housing in the area
2. Retain service commercial and light industrial uses and also encourage retail uses
3. Ensure the provision of adequate amenities and services for residents and employees,
including bike/pedestrian connections
The California Avenue/Fry's area, which includes the California Avenue business district
south to the properties that house the existing Fry's Electronics store, was identified for a
concept plan study because most of it is within the zoning district designated Pedestrian and
Transit Oriented Development (PTOD), and within the Transit-Oriented Residential
designation in the current Comprehensive Plan, intended to allow high intensity residential
development. Higher density residential development is planned in the PTOD area on
commercial, industrial and multi-family parcels within a walkable distance of the California
Avenue Caltrain station. The concept plan process provides an opportunity for the City to
evaluate the area and target specific sites for future intensification. Although on the
periphery of the actual PTOD area, the Fry's site was also included within the plan area to
address long range future uses on the property. The existing Comprehensive Plan includes
the following relevant policies adopted for the California Avenue area that provide context
for the concept plan:

• Connect the area with the transit station and California Avenue. Provide streets and
pedestrian connections that create a walkable neighborhood.
• Develop a program for the Fry's site for its future use for mixed density multi-family
housing and a park or other open space. (note: more recent Council direction
includes evaluation of the feasibility of retaining commercial use on the site).

CMR: 367:10 Page 2 of 12

• Develop one or more of the City-owned parking lots with primarily residential uses,
provided that public parking spaces are replaced.
• Improve the Park Boulevard streetscape.

DISCUSSION
Both concept plans have been in development for approximately 18 months. This report
summarizes the work completed to date for each of the plans.
East Meadow Circle/Fabian Way Area Concept Plan
The East Meadow Circle! Fabian Way area was chosen for study because of the
substantial land use changes since 2000.Changes included:
I. Echelon residential development
2. Vantage residential development
3. Altaire residential development
4. Taube Koret Campus for Jewish Life

During 2009, staff and the City's consultants collaborated with community members to
conduct a scries of stakeholder meetings and three community workshops which yielded
the following list of concerns and opportunities:
• Impact of additional residential
development on services- ",,
particularly on schools
• Traffic impacts of additional
development
• Loss of manufacturing and light
industrial uses
• Need for neighborhood-serving
commercial uses
• Need for year-round access to the
Baylands
J
• Need for off-street parking
facilities
• Need for park/open space
• Need for increased public transit
service in the area
The meetings and workshops also , •.,I'j
identified these five key areas/issues for ~I
I
further consideration: I
1. East Meadow Circle Subarea ~(

II. East of San Antonio Subarea

III. Charleston Road Subarea
IV. Path along Adobe Creek ..
t\r~ns of the ib-SUCS that were i~IC't1hfjc\1 as a result .oflhe
V. Improved access to the Baylands
stakeholder meeting-'i find community workshops

Input from the participants at the workshops guided staff and consultants in developing

CMR: 367:10 Page 3 of [2

alternatives for each area/issue and ultimately in distilling preferred alternatives that
generally reflected the collective input provided at the community meetings.
Early in 2010, staff prepared the Draft East Meadow Circle/Fabian Way Concept Plan. It
reflected concepts developed during the community workshops and the input ofstakeholder
meetings, separate research and analysis conducted by staff and the consultant team, and
consideration of Comprehensive Plan policies and planning principles. The following is a
summary of the draft concept plan, presented to the Planning and Transportation
Commission on February 10, 20 I O.

I: East Meadow Circle Subarea:

The draft plan envisioned a revitalized business park for East Meadow Circle and
identified areas where design requirements would be needed to ensure a successful
transition between new development and existing single-family neighborhoods.
Recommendations for this subarea included:
I. Modity development
regulations to allow increased
floor area for research/office
uses and consider 3-story
development.
2. Restrict or prohibit potential
incompatible uses such as
multi-family residential,
schools, and day care and
require conditional-use-
permits for senior-housing and
assisted-living residential uses.
3. Create amenities-tied to
increased development
potential-such as parking, a
park, and enhanced
bicycle/pedestrian
connections.
4. Develop design guidelines for
landscaping and architecture. East Mcadol\' Circle Subarea

II: East of San Antonio Subarea:

The draft concept plan envisioned larger-format retail stores-possibly with a grocery
store as the anchor--{)n a swath of parcels along Charleston Road. The plan emphasizes
the need for a balance of auto-oriented and pedestrian friendly streetscape.

CMR: 367:10 Page 4 of 12

Recommendations for this subarea
included:
I. Change the land use designation to
Service Commercial to encourage
larger-scale frontage retail along
Charleston Road.
2. Increase the allowable floor area ratio
in this area, create zoning that
encourages retail uses, and develop
policies that encourage lot
consolidation and restrict office uses.
3. Develop design guidelines for
landscaping and architecture.
East of San Anlonio Subarea
III: Charleston Road Subarea:
The draft concept plan envisioned a pedestrian friendly corridor of mixed uses on both
sides of Charleston Road i.e., Blocks A and B. The draft concept plan recommended no
change to Block C based on the stated intent of the study-retention of viable industrial
uses.
Recommendations for this subarea included:
I. Change the land use design?tion from Light Industrial to Neighborhood Commercial
in limited areas to provide commercial
services to support residential
development.
2. Consider a policy to encourage
retentionlrenovation of the Fairchild
Building.
3. Consider a policy to encourage the
retention of the neighborhood gas
station.
4. Develop design guidelines for
landscaping and architectural design
that maintain a neighborhood-oriented
streetscape with good
bicycle/pedestrian circulation.
5. Enhance the streetscape of Charleston
Road with street trees, improved
pedestrian crossings and improved C[m[cston Rond Subnrca
bicycle access and circulation.

CMR: 367:10 Page 5 of 12

IV and V: Pedestrian/Bike Connections
In addition to the preferred alternatives
for the three subareas, the plan calls for
a bike/pedestrian path along the Adobe
Creek right-of-way and a
bike/pedestrian overpass across
Highway 101 to provide year-round
access to the Baylands.

On February 10,2010, staff discussed

the draft concept plan with the Planning
and Transportation Commission
(Commission). The Commission's
major comments on the draft were:

•
: Possible Adobe Creek Path
•
( Possible Overpass to Baylullds
"""

For I, the East Meadow Circle Subarea,

the Commission:
I. Requested that the subarea be
expanded-to consider changes to
land use designations and creation of
development policies for additional
parcels i.e., the parcels fronting
Highway 101 and along Fabian Way
2. Did not support the creation of a new
park but did support the concept of a
greenbelt providing open spaces.
3. Introduced the concept of a floor
area cap for consideration.

,,"/\\
Possible e~pallsion of the
Easl Mcadow Circle Subarea

CMR: 367:10 Page 6 of 12

For II, the East of San Antonio Subarea, the
Commission:
4. Supported new retail development but /
requested that the area identified for retail
development be expanded-potentially to
include all the parcels north to Highway
101.

For III, the Charleston Road Subarea, the

Commission:
5. Introduced the concept of an overlay for
Block A-to encourage mixed use with
housing that is senior, assisted-living, or
such that it complements uses at the Taube
Koret Campus for Jewish Life.
6. Introduced the concept of changing the land
\ ,:~::-:-\~\q
use designation of Block C from Light
Possiblc cxpallsioll of
Industrial to Neighborhood Commercial.
East of Sail Alltollio Sllbarcn
nlld thc CI~1rlcstoll Rond Sllbarcn

California Avenue/Fry's area Concept Plan

Several stakeholder meetings with property owners
in the area, a meeting with business owners along
California Avenue and three community
workshops were held to discuss the California
,
Avenue/Fry's area and options for a proposed plan.
~.,

"""' .._ . · . .... 1

The main issues/concerns and opportunities raised

at the workshops included: "
I. Retaining the unique neighborhood serving,
small town feel of California Avenue.
2. Providing support for neighborhood-
serving businesses.
3. Mixed use development on Park Blvd. that
does not compete with California Avenue
as a retail area.
4. Addressing impacts on schools, traffic,
parking and infrastructure from additional
residential development in the area.
5. Traffidcirculation and safety in the Park
Boulevard area. Cnlifo"'ia Avclluc Fry's COllcept Plnll
$ubnreas

CMR: 367:10 Page 7 of 12

6. Improving pedestrian/bicycle connectivity and providing adequate open space.
7. Encouraging retention of FlY'S Electronics. If Fry's relocates, new uses should
consider other retail, high density residential or mixed use.

The business owners along California Avenue also stressed the desire to retain the current
"unpretentious" nature of the retail area and were concerned about the current lack of
parking particularly during mid-day and supported increasing the capacity of the garages.
The proposal to change the lane configuration on California Avenue from four lanes to two
lanes to accommodate pedestrian use as part of the related streetscape project was also
discussed. Some business owners and area residents were concerned that the traffic along
the street would be impeded and adversely affect businesses and customers alike. Others
supported the idea of slowing traffic and enhancing safety and the overall pedestrian
experience. The streetscape project was discussed again in two recent meetings with
businesses and the community in mid-September and the two-lane configuration continues to
be an issue.

The owner's of the Fry's property on Portage expressed concern about the site's viability as
a commercial use and the site's future should Fry's Electronics leave after their lease expires
in 2014. They prefer higher density housing on parcels located in the interior of the site,
while commercial may be possible along EI Camino Real. The owners of 395 Page Mill
would like to pursue a higher floor area than the maximum allowed under the current land
use designation for additional office development to support California Avenue businesses.

Draft California Avenue Concept Plan Alternatives

Three specific subareas for the Concept Plan have been identified:
I. California Avenue co. .. II..
II. Park Boulevard
III. Fry's Site

These subareas were chosen

because of their geography, unique
characteristics and development
potential. Three draft Concept Plan
Alternatives were developed by the
consultants and staff for each of the
three subareas. Generally, within
each subarea one alternative was _ p~ f\,IV mrn rlity Co;J "(lYt¥(ot
proposed with little or no change, a I _ l'l*r rl1Uutbr!
second with moderate b- E'hJ·. E~ V.,.,..,1Xt nl
intensification and a third with _ Pra; t o.:.1 Q.(urJ.l! "1 @
higher intensification.
I- SlJl.JI'\l8ou)j
_ u_ >_ _ __ ,......_ _ _ ~
Calilomia AWlIlIO Sllbar~a Existing l.'lId Uso Designatiolls
Subarea I: California Avenue Subarea
The California Avenue subarea includes the business district and surrounding streets.
Alternative A would propose no change to the existing Regional/Community Commercial
Comprehensive Plan land use designation. This alternative would allow the area to continue

CMR: 367:10 Page 8 of 12

to develop as it has been. If no changes are made, it is anticipated that existing buildings
may modernize gradually or may not change without incentives for redevelopment.
California Avenue would remain a four lane road with possible tree plantings in the median
in this version.

Alternative B would propose changing the land use to allow medium density residential
development. This density could yield two to three story buildings with retail on the ground
floor and housing above. To facilitate the higher intensity development, three-story parking
garages would be provided.

Under Alternative C the land use would allow buildings between three and four stories in
height. Because this would allow a greater intensity, redevelopment would become more
economically feasible, and, therefore, more new buildings and other changes could result.
Changes could include a substantial new park in the area; and, as in Alternative B, more
parking structures would be provided

CalifOrnia Avenue Streetscape Plan

As mentioned above, staff has held several meetings with the neighborhood including
businesses, property owners, and residents on California A venue as well as residents in the
general vicinity to discuss the future streetscape for California Avenue. Past planning effolts
for the area envisioned a multi-modal street that encourages pedestrian and bicycle usage and
ensures safety for all types of travel. Changing the street from four lanes to two lanes
enables the provision of amenities such as additional trees, bulbouts, reconfigured and added
parking, and possibly widened sidewalks that encourage people to walk in the area and
patronize the existing businesses. The plan for the lane reduction, however, has been
controversial. Staff submitted a grant proposal last week to the Valley Transportation
Authority (VT A) for funding for streetscape improvcments that may be granted only if the
street is reconfigured to a two lane street. The grants will be announced in late November.
If the Council does not support the lane reduction, staff can request withdrawal of the
submitted application or can discuss with VTA acceptable modifications to the streetscape
design.

Subarea 2: Park Boulevard Subarea

The Park Boulcvard subarea consists of the propelties located between Park Boulevard and
Alma Street, including 395 Page Mill Road, fOlmerly the Agilent building.

Alternative A for this subarea would propose two land use designation changes to reflect
existing or already proposed uses on 2 sites. Street improvements such as sidewalk bulbouts
at the intersections of Park Boulevard and Sheridan Avenue and replacing the dedicated right
turn lane on Park Boulevard with street parking could
also be implemented to improve circulation in the area.

Alternative B for Park Boulevard includes changing the properties on Park Boulevard and
195 Page Mill Road from Light Industrial to allow mixed use development with two to three
stories of housing. 2747 and 2785 Park would be redesignated from Light Industrial to allow
multi-family residential. Other potential changes includc the same strcct improvements as

_ ....... ::=--:-:----- - - - - - : ; : - _....... -

CMR: 367:10 Page 9 of 12
Alternative A and pedestrian improvements at
Page Mill Road and Park Boulevard.

Alternative C would propose the four land use

changes similar to Alternative B but at a higher
density. The existing Light Industrial Park
Boulevard properties would allow mixed
use buildings to be three to four stories tall. The
triangular property located across 395 Page Mill
Road would be changed to Research/Office Park.
Other Park Blvd. properties would be changed to
allow mixed use development at a higher density.
As a result of the more intense development,
additional infrastructure improvements could
include a new traffic signal (if warranted) on Park
Boulevard, closing the ramp entering Oregon
Expressway from Page Mill Road and/or
improving the bicycle connection along Park
Boulevard. _ Regio(\:\VC OI"M'II"nily COl'Ml~"6,u
_ RcscardllOfflCf! Park
b.- Bird'~ Eye Vlcwp~nl
- Project I\ound"rr
- Subarea Boun<.iary
J _~--'.--'-- l!L:.~
r·
Pnrk OOillevlliJ S,;bnrell
Existing 1.and ""C DCllignation.

Subarea 3: Frv's Site Subarea ')jn~~ Family ~d<;nti.:al

Ught Ir.rustrl.l.l
This subarea includes the _ Hultl.F.lmily ~iJl
commercial uses to the west and
south of Fry's Electronics as well as
some of the low density residential
propelties to the north.
-•

Alternative A would change the

Multi-Family land use designation of
the Fry' s property to Service
Commercial to match the existing
use. No other changes would be
proposed. Under this designation,
the Fry's property could still be
developed with either all commercial
development or as a mixed use
project. No changes would be made
to the streetscape or circulation since Fry's Subarea Existing Land Use Designations
the land use pattern would remain
ess entially the same.

CMR: 367: 10 Page 10 of 12

Alternative B would result in two land use changes. While the designation for the portion
ofthe property that actually houses Fry's would remain Multi-family residential, the portion
that fronts Park Boulevard would be changed to Neighborhood Commercial. Should the
property be redeveloped, housing would be developed in the interior of the site; however,
parcels with Park Boulevard frontage could be developed with retail shops or offices.
Redevelopment ofthe site would allow Portage and Acacia Avenues to be extended through
the site to connect to Park Boulevard. Matadero Creek could also be used to create a linear
park. The single family residential properties to the nOith along Olive Avenue could be
redesignated as Village Residential, creating a logical transition from the single family
neighborhoods to the north and east.

Alternative C for the Fry's site would allow an even more intense redevelopment of the
subarea. In this proposal, the interior parcels fronting Park Boulevard and the residential
properties to the north would be changed to allow mixed use. This would allow
redevelopment with a range of offices, retail and residential, offering the greatest amount of
flexibility. Redevelopment could take the form of three to four story buildings developed
around interior open space. Matadero Creek could also be developed as a linear park and
more significant park and open space would be provided internal to the development.
Portage and Acacia Avenues could be reconfigured to provide connections to Park
Boulevard. Pedestrian and bicycle improvements would also be incorporated.

Next Steps
Following this hearing, the concept plans will be reviewed by the Planning and
Transportation Commission (PTC). The Draft California Avenue/Fry's Concept Plan
alternatives will be discussed at a hearing on October 27. The East Meadow Circle/Fabian
Way Concept Plan will be discussed by the Commission on November 17'h. Subsequently,
the PTC will recommend to the Council, and Council will then tentatively adopt Concept
Plans to be evaluated in the Comprehensive Plan EIR.

POLICY IMPLICATIONS
The two draft concept plans are generally but not entirely, consistent with the existing
policies in the Comprehensive Plan. Comprehensive Plan policies as a whole are being
revised conCUlTent with this effort, which will require some reconciliation of the plans and
policies.

ENVIRONMENT AL REVIEW
No Council action on either concept plan is requested at this time. The concept plans will be
evaluated in the context of the Comprehensive Plan Environmental Impact Report.

CMR: 367:10 Page 11 of 12

PREPARED BY:

DEPARTMENT HEAD:
~~
CURTIS WIL~ ~
Director of Planning and Community
Environment

CITY MANAGER APPROVAL:

ATTACHMENTS
Attachment A: East Meadow Circle Area Concept Plan Boundary
Attachment B: California Avenue/Fry's Area Concept Plan Boundary

CMR: 367:10 Page 12 of 12

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