2 RELEVANT POLICY DOCUMENTS I. CITY-WIDE DOCUMENTS

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1 2 This chapter describes relevant policy documents and regulations that should be considered in the development of the Hillsdale Station Area Plan. The City s General Plan and Zoning Ordinance are described, as well as other city-wide policy documents. Documents specifically relating to the El Camino Real corridor and the Bay Meadows I and II development are also discussed. The review of these documents and regulations will help identify the capacity for policy change as it relates to the Plan Area. I. CITY-WIDE DOCUMENTS This section describes documents that are applicable throughout the City of San Mateo. Both General Plan: Vision 2010 and the updated General Plan: Vision 2030 are described because the 2030 plan has not yet been adopted. The land use designations for the Plan Area are identical in these two plans, so they are included with the 2030 plan. A. General Plan Vision 2010 Several elements in the current General Plan include policies in that relate to the Station Area. These are summarized below and are included in this document as Appendix A. 1. Land Use Element This element includes policies that identify City land use priorities, and is based on the Land Use Map. It calls for the City to encourage multi-family housing development, including mixed-use development scenarios. It also calls for commercial uses to be focused in key nodes. El Camino Real is highlighted as needing visual upgrades. The Plan also calls for the establishment of the transit-oriented development (TOD) designation around the Hillsdale Station. 2-1

2 The General Plan provides the following land use designations in the Plan Area: Low-Density Multi-Family Residential (9 to 17 units per acre 21 to 39 persons per acre). Lower density residential uses such as duplexes and townhouses, typically 1 to 2 stories, usually located in close proximity to single-family areas. Medium-Density Multi-Family Residential (18 to 35 units per acre 40 to 80 persons per acre). Apartment and condominium developments, typically 2 to 4 stories, which include on-site useable open space. High-Density Multi-Family Residential (36 to 50 units per acre 81 to 115 persons per acre). Higher density multi-family areas, typically three to five stories, usually located near transportation corridors, major streets, commercial areas, the Downtown and train stations. Neighborhood Commercial. Includes shopping centers serving the immediate neighborhood and including off-street parking, or, clusters of street facing storefronts. These areas often include uses such as supermarkets, bakeries, drugstores, restaurants, delicatessens, barber shops, hair salons, laundromats, hardware stores, dry cleaners, small offices and other personal services. Characterized by low to medium FARs (floor area ratio) of 0.5 to 1.0 and heights 25 feet to 45 feet. Regional/Community Commercial. Larger shopping centers and districts providing goods and services usually not available in neighborhood shopping centers. These centers rely on large trade areas and may include department stores, banks, furniture stores, auto dealerships, appliance stores, toy stores, hotels, and offices. Regional centers include Hillsdale and The Island Shopping centers and certain strip commercial areas, such as El Camino Real (State Route 82). Characterized by medium to high FARs of 1.0 to 2.5 and heights of 35 feet to 55 feet. 1 Homeless shelters 1 Densities up to 75 units per acre, and height limits up to a maximum of 75 feet may be allowed in some areas within these land use categories (Regional/Community Commercial, Executive Office, and Mixed Use Incentive), as 2-2

3 and other forms of transitional housing are permitted under this land use category. Service Commercial. Facilities which provide city-wide and regional services including automobile and truck repair, building material yards and animal hospitals. These uses are generally located away from residential areas due to potential noise, air quality and parking conflicts. Residential uses are not permitted in service commercial areas. Characterized by a medium FAR of 1.0 and heights up to 30 feet. Regional/Community Commercial/High Density Multi-Family. This designation allows for a mix of Regional/Community Commercial and High Density Multi-Family uses. Executive Office. Office parks as well as concentrations of medical or professional offices. Accessory uses permitted include restaurants, personal services, travel agencies, printing, ticket outlets, clubs, and recreation facilities. Characterized by low to medium FARs of 0.62 to 1.0 and heights of 35 feet to 55 feet. Public Facilities. Facilities owned and/or operated by the City, other governmental agencies, and/or the public school districts. Mixed Use Incentive. Commercial retail and executive office areas where development incentives, typically increased height and floor area, are provided to encourage housing development, ranging from low to high densities, typically in buildings greater than two stories, in addition to retail and office uses. Characterized by a wide range of medium to high FARs of 1.0 to 3.0 and heights of 25 feet to 55 feet. Transit-Oriented Development (TOD) Areas. Two TOD areas are established for parcels located within close proximity of the Hillsdale Station Area and Hayward Park CalTrain Station Area. Land use in this area should be transit supportive, including multi-family housing and major employment centers. Retail uses are intended to be conveniencespecified in the area specific policy for Downtown (PA 3), and Policies PA 5.2 and PA 6.3 of the Land Use Element. 2-3

4 oriented, such as, but not limited to, cafes, newsstands, dry cleaners, neighborhood grocery stores, daycare facilities, bicycle shops, and art stores. These uses should be developed within larger mixed-use buildings that contain residential or office uses. Childcare facilities and daycare centers should be incorporated within employment centers and multifamily projects. Densities may range from 25 to 50 units per acre, FARs may range from 0.3 to 3.0, and heights may range from 24 feet to 55 feet. Transportation Corridor. Freeways and fixed transit lines which provide mass transportation. Portions of the railroad corridor not required for transportation purposes may be considered for other uses. A map of the General Plan Land Use designations within the Plan Area is shown in Figure 2-1. This element also includes area-specific policies, some of which are particularly relevant to the Station Area. Expansion and redevelopment of the Hillsdale Shopping Center into including commercial, office, hotel, or mixed uses is allowed, and requires a Master Development Plan. There are also areaspecific policies for South El Camino Real, which includes the portion of El Camino Real in the Plan Area. These policies call for TOD around the Hillsdale station. In addition, this section describes the area as appropriate for commercial and high-density residential uses and establishes design-related criteria for increased building height. Finally, there are policies for targeting the 25 th Avenue shopping area calling for ground floor retail uses, height increases of up to two stories, and four story buildings on El Camino Real. 2. Circulation Element The Circulation Element has numerous policies that relate to development of the Station Area Plan. These fall into three main categories: 2-4

5 Edison St S. El Camino Real C I T Y O F S A N M A T E O H I L L S D A L E S T A T I O N A R E A P L A N E X I S T I N G C O N D I T I O N S R E P O R T R E L E V A N T P O L I C Y D O C U M E N T S 24th Ave Saratoga Dr 26th Ave Lula Belle Ln W. 25th Ave Mary Lu Ln Palm Ave E. 25th Ave Delaware St Portola Dr Palm Ct Delmar Wy Garfield Ct Palm Pl 27th Ave Juniper St Hacienda St 28th Ave Garfield St 29th Ave Flores St Edison St 30th Ave Sylvan Ave Arbor Ln 31st Ave Briar Ln Arrowood Ln Hickory Ln Louise Ln Chestnut Ln Mc Lellan Ave Curtiss St Winway Cir Hillsdale Blvd Pacific Blvd Poinsettia Ave Otay Ave 37th Ave 36th Ave San Benito St Oso St San Miguel Wy Feet Plan Area Boundary Low Density Multi-Family Medium Density Multi-family High Density Multi-Family Neighborhood Commercial Regional/Community Commercial Service Commercial Regional/Community Commercial/High Density Multi-Family Executive Office Public Facilities Transit Oriented Development Transportation Corridor F I G U R E 2-1 G E N E R A L P L A N L A N D U S E D E S I G N A T I O N S

6 a. Roadway Policies The Circulation Element calls for transportation demand management (TDM) throughout the City, particularly in the Rail Corridor Transit- Oriented Development Plan Area D. In addition, it calls for a transportation fee and roadway dedications to ensure necessary roadway improvements are constructed. b. Transit Policies The Circulation Element is strongly supportive of bus ridership, as well as Caltrain Service. In particular, the element calls for use of the ½-cent Measure A sales tax funds to provide grade crossing improvement at 25 th Avenue, and also calls for grade-separated crossings at 28 th and 31 st Avenues. It calls for an overall study of grade separations and discourages elevation of the rail line. Finally, the Circulation Element calls for the Hillsdale Station to be relocated northward, with a focus on developing a multi-modal station surrounded by TOD. c. Bicycle and Pedestrian Policies Bicycle and pedestrian circulation policies related to the Plan Area focus on improving east-west bicycle access, bicycle connections to destinations such as office parks and train stations, and improving pedestrian safety. 3. Urban Design Element Urban design parameters in this element emphasize a better relationship between buildings and the street and improved pedestrian orientation. The element recommends developing important focal points and gateways that punctuate El Camino Real and promote mixed-use development. It highlights the Hillsdale Shopping Center and the Hillsdale Train Station as important focal points. This element seeks to improve the streetscape and cluster development to create focal points. Finally, the Urban Design Element calls for commercial development to be pedestrian-oriented and sensitive to the surrounding scale of buildings. 2-6

7 B. Updated General Plan Vision 2030 The updated General Plan, titled General Plan Vision 2030 was released for public review in July Final Plan adoption is expected during mid The update does not include changes to the land use designations. However, it does make several key changes. The changes relevant to the Station Area Plan are summarized below: It modifies land use policies to limit residential development in service commercial areas. Specifically, a new Policy LU 1.14 would require a special use permit for residential uses in areas designated as neighborhood commercial, regional community commercial, and executive office on the Land Use Plan except for mixed use land use designations. It reclassifies several streets from local to collector, including Edison Street between 28 th Avenue and the Hillsdale Shopping Center, which is in the Plan Area. It contains new Circulation Element policies, including those that encourage bicycle and pedestrian connections and those incorporated from the Rail Corridor Transit-Oriented Development Plan. It establishes the City s design preferences for High Speed Rail along the Caltrain corridor. It contains policies to improve the City s sustainability and address climate change. C. Zoning Ordinance The City of San Mateo s Zoning Ordinance implements the General Plan through zoning districts and overlay zones, and contains general provisions for orderly development in San Mateo. Following is a summary of zoning districts with combined overlays that are found in the Plan Area. A map of these zoning designations within the Plan Area is shown in Figure

8 R1-C: One-Family Dwellings C /FAR /24 Feet Maximum Height 3. Permitted uses generally include single-family dwellings with substantial yard space, ample setbacks for privacy and two-car garages. Special uses such as public facilities and schools are allowed with special use permits. One of three R1 districts ( A, B, and C ), parcels in R1- C are smaller than parcels in the other single-family districts, with minimum lot sizes of 5,000 square feet. R2: Two-Family Dwellings/FAR.6/24 Feet. Permitted uses are the same as in the R1 districts, but also include two-family dwellings (duplexes). Minimum lot size is 5,000 square feet, which leads to single ownership of properties unless a condominium map is approved. R3: Multiple-Family Dwellings (Medium Density)/FAR.85 4 /35 Feet. 5 Permitted uses include any use allowed in the R1 and R2 districts, in addition to multiple family dwellings. Small lodging establishments, convalescent and nursing homes, and day care centers are allowed with a special use permit. R4: Multiple-Family Dwellings (High Density)/FAR /45 Feet. Permitted uses include any use allowed in the R1, R2, and R3 districts. Lodging houses and hotels, private clubs, fraternity and sorority houses, 2 The FAR for the R1-C district is 0.5 for parcels 6,000 square feet and less plus 0.2 for additional parcel area over 6,000 square feet. 3 Maximum height for the R1-C and R2 districts is 24 feet when measured from the existing grade to the building plate line and 32 feet when measured from the existing grade to the highest point of the roof. 4 The Zoning Administrator and/or Planning Commission Zoning Administrator and/or Planning Commission may grant a FAR greater than 0.85, but not greater than 1.0, in the R3 district if the structures meet certain conditions. 5 Maximum heights of Plan Area parcels in the R3, R4, and R5 districts are set by the Building Height Plan, and are not designated in the zoning ordinance. 6 The Zoning Administrator and/or Planning Commission may grant a FAR greater than 1.5, but not greater than 2.0, in the R4 district if the structures meet certain conditions. 2-8

9 hospitals, and philanthropic institutions are allowed with a special use permit. R5: Multiple-Family Dwellings (High Density)/FAR /45 Feet. Permitted uses include any use allowed in the R1, R2, R3, and R4 districts. Apartment hotels are allowed with a special use permit. R5: Multiple Family Dwellings (High Density)/FAR 2.0/40 to 55 Feet. 8 Permitted uses include any use allowed in the R5 district, but with an increased height limit. C1-2: Neighborhood Commercial/FAR 2.0/35 Feet. Permitted uses include retail sales serving the immediate neighborhood, limited office space, and personal services. C1-.5: Neighborhood Commercial/FAR 0.5/25 Feet. Permitted uses are identical to the previous zoning designation, but with a smaller FAR and a lower height limit. C1-.5: Neighborhood Commercial/FAR 0.5/45 Feet. Permitted uses are identical to the previous zoning designation, but with an increased height limit. C2-2/Q5: Regional/Community Commercial with Q5 Qualified Overlay District 5/FAR 2.0. Permitted C2 Regional/Community Commercial uses include office, retail, and personal services of community-wide or regional significance. The Q5 overlay is established to provide for specific development guidelines pertaining to the Hillsdale Shopping Center. When a project located in this district requires less than 75 percent demolition, expansion, or redevelopment of structures on site, and a Site Plan and Architectural Review, certain findings must be met to ensure an appropriate and safe business environment. When more than 7 The Planning Commission may grant a FAR greater than 2.0, but not exceeding 3.0, for a residential high-rise project if it meets certain development bonuses. 8 Under the Building Heights Plan, on lots more than 100 feet deep, buildings over 40 feet may be permitted up to a maximum of 55 feet if they conform with specific Planning Area policies. 2-9

10 75 percent demolition, expansion, or redevelopment of structures is expected, a Master Plan that is consistent with the El Camino Real Master Plan is required. Maximum allowable heights are 40 to 55 feet for structures immediately facing El Camino Real, 35 feet for structures immediately facing the western boundary of the overlay, 60 feet for remaining structures north of Hillsdale Boulevard, and 55 feet for remaining structures south of Hillsdale Boulevard. C3-2: Regional/Community Commercial/FAR 2.0/40 to 55 Feet. Permitted uses include office, retail, and service uses of community-wide or regional significance. The C3 range of uses is similar, but broader, than the C2 range of uses, and it includes automobile service, sales and rental units, and research, experimentation, and testing facilities. C3-1/R4: Regional/Community Commercial with R4 Overlay/FAR 1.0/40 to 55 Feet. Permitted uses include those of the C3 district as well as residential uses that are included in a mixed-use development. Nonresidential uses are limited to a FAR of 1. However, the R4 Overlay permits the total maximum FAR to reach 2.0 for a mixed-use project with a residential component. C4-1: Service Commercial/FAR 1.0/25 Feet. 9 Permitted uses include those in the C1, C2, and C3 districts and additional regional service uses such as automobile and truck repair, construction materials yards, air conditioning and heating sales and service, dry cleaners, machinery sales, storage and warehousing, and limited processing of materials. E2-1: Executive Offices/FAR 1.0/45 Feet. Permitted uses include professional and administrative offices, personal services, such as health and recreational facilities, public utility and service uses, schools and day care facilities, and limited retail sales. Multi-family residential uses subject to R4 development standards are also permitted. 9 Maximum heights of Plan Area parcels in the C4-1 and E2-1 districts are set by the Building Height Plan, and are not designated in the zoning ordinance. 2-10

11 E2-1: Executive Offices/FAR 1.0/40 to 55 Feet. Permitted uses are identical to those allowed in the previous district, but with an increased height limit. TOD: Transit-Oriented Development. The purpose of this district is to implement the San Mateo Rail Corridor Transit-Oriented Development Plan (Rail Corridor Plan). Any provisions, permitted uses, and guidelines are subject to the standards specified in the Rail Corridor Plan. TC: Transportation Corridor. The purpose of the TC district is to maintain adequate public transportation corridors to accommodate highway and rail transit at Highway 101, State Route 92, and the rail line. In the Plan Area, permitted uses include the railroad rights-of-way (ROW), public utilities, transit stations, minor retail and service uses for public transit passengers at a transit station, accessory parking lots for transit stations, and Park and Ride lots. Parking lots for abutting commercial uses and automobile storage for dealerships are allowed with a special use permit. D. Measure P Initiative In 2004, the voters of San Mateo passed Measure P. Measure P extended the provisions of the sun setting Measure H. Measure H passed in 1991 and became effective January 1, Measure P extended the horizon-year of Measure H to 2020 and incorporated some modifications. It places limitations on building heights throughout the city, with the intent of maintaining San Mateo s suburban character while providing for economic development and increasing the development of affordable housing. The measure includes language that was inserted into the General Plan, including both the 2010 and public review draft 2030 versions. Building heights permitted in the Plan Area are as shown in Figure 2-3. Exceptions to the height limits may be considered by the City Council, if they are accompanied by a request to change the land use designation for a parcel or parcels. Measure P increased the maximum permitted heights allowed on the central (building) portion of the Hillsdale Shopping Center north of Hillsdale Boulevard from 55 to 60 feet. 2-11

12 Edison St C I T Y O F S A N M A T E O H I L L S D A L E S T A T I O N A R E A P L A N E X I S T I N G C O N D I T I O N S R E P O R T R E L E V A N T P O L I C Y D O C U M E N T S Juniper St 26th Ave Portola Dr Delmar Wy Hacienda St 28th Ave Garfield St Garfield Ct 27th Ave 29th Ave Lula Belle Ln C1-2 W. 25th Ave C1-2 Mary Lu Ln R4/SC E2-1 Flores St R4 R2 24th Ave R5 R4 R1-C Edison St C1-2 C1-2 E2-1 C3-1/ R4 R5 C3-1/R4 S. El Camino Real Palm Pl Palm Ave C1-2 E. 25th Ave C1-2 Palm Ct C3-2 C4-1 Delaware St Saratoga Dr 30th Ave TOD Sylvan Ave R2 C2-2/Q5 Arbor Ln 31st Ave Briar Ln Arrowood Ln Hickory Ln Louise Ln Chestnut Ln C2-2/Q5 TC Mc Lellan Ave Curtiss St Winway Cir Hillsdale Blvd C th Ave R3 C2-2/Q5 C3-1/R4 36th Ave Pacific Blvd R4 San Benito St Oso St Poinsettia Ave Otay Ave San Miguel Wy Feet Plan Area Boundary R1C One Family Dwelling "C" R2 Two Family Dwellings R3 Multiple Family Dwellings (Medium Density) R4 Multiple Family Dwellings (High Density) R5 Multiple Family Dwellings (High Density) C1 Neighborhood Commercial C2 Regional/Community Commercial C3 Regional/Community Commercial C4 Service Commercial E2 Executive Offices TOD Transit Oriented Development TC Transportation Corridor F I G U R E 2-2 Z O N I N G D I S T R I C T S

13 Edison St S. El Camino Real C I T Y O F S A N M A T E O H I L L S D A L E S T A T I O N A R E A P L A N E X I S T I N G C O N D I T I O N S R E P O R T R E L E V A N T P O L I C Y D O C U M E N T S 24th Ave Saratoga Dr 26th Ave Lula Belle Ln W. 25th Ave Mary Lu Ln Palm Ave E. 25th Ave Delaware St Portola Dr Palm Ct Delmar Wy Garfield Ct Palm Pl 27th Ave Juniper St Hacienda St 28th Ave Garfield St 29th Ave Flores St Edison St 30th Ave Sylvan Ave Arbor Ln 31st Ave Briar Ln Arrowood Ln Hickory Ln Louise Ln Chestnut Ln Mc Lellan Ave Curtiss St Winway Cir Hillsdale Blvd Pacific Blvd Poinsettia Ave Otay Ave 37th Ave 36th Ave San Benito St Oso St San Miguel Wy Feet Plan Area Boundary 24 feet 25 feet 32 feet 35 feet 45 feet feet* 55 feet 60 feet *For lots more than 100 feet deep, buildings over 40 feet may be permitted up to a maximum of 55 feet if they conform with specific Planning Area policies. F I G U R E 2-3 A L L O W A B L E H E I G H T S

14 Requests for height changes consistent with the height ranges for specific land uses as designated in General Plan 2010 Appendix C, entitled Building Height, may be considered by the City Council only when accompanied by a request for change in land use designation. Such requests may be approved only if the following findings are made: The building has high design quality, which is enhanced by additional building height; Increased building heights are visually related to surrounding building heights and promote the creation of a coherent City image; Increased building heights will still provide for a variety of building heights in the vicinity of the project and the surrounding areas; Increased building heights are compatible with surrounding land uses, and will not create adverse shadow or visual impacts on surrounding residential uses; and The City s infrastructure is adequate to accommodate the proposed development. E. Below Market Rate Inclusionary Program The Below Market Rate (BMR) Inclusionary Program is described in Chapter 8, Affordable Housing. F. Residential Design Guidelines The City provides design guidelines for single-family dwellings, duplexes, multi-family dwelling units, and small-lot multi-family dwelling units. While the zoning code regulates the height, bulk, setback, parking, open space, and other standards, the design guidelines establish preferred architectural character, site design, and building design. Through the application process, the City s Zoning Administrator and/or Planning Commission will determine if a project conforms to these guidelines, and approve or deny the application. 2-14

15 1. Single-Family Dwelling Design Guidelines The City provides design guidelines for single-family dwellings, which can be found near the western boundary of the Plan Area, between Edison and Flores Streets. Developed in 2000, the guidelines are intended for use by homeowners, designers, and City staff when considering new single-family dwellings or second-story additions. The guidelines are designed to ensure that new projects or modifications contribute to a successful neighborhood character. 2. Duplex Design Guidelines The City s housing stock is evenly divided between single-family and multifamily units. Well-designed duplex housing provides a transition between neighborhoods of different character. Duplexes can be found near the western boundary of the Plan Area, and on all R2 zoned parcels in the City. Because duplexes are generally larger than single-family units, these guidelines focus primarily on building form, scale, architectural details, and other ways to provide a graceful transition from small homes to more dense dwelling units. 3. Small Lot Multi-Family Guidelines The small lot multi-family guidelines apply to parcels zoned multi-family, that are less than 10,000 square feet in size, and have three or more dwelling units proposed. The site planning guidelines aim to integrate new development into the existing fabric of the single-family neighborhoods in San Mateo. The FARs of new small-lot developments are: 0.85 in R-3, 1.5 in R-4, and 2.0 in R-5 zones. Setbacks should be 15 feet in the front and rear, 6 feet on the side for two-story buildings, and 8.5 feet on corner parcels. For buildings greater than two stories, the side setback is half the building height. 2-15

16 Open space should be provided as part of all new developments. Buildings in R-3 zones require 200 square feet of open space for the first bedroom and an additional 100 square feet for each additional bedroom. Developments should include 1.8 parking spaces for each 1-bedroom, 2.0 spaces for two bedroom units, and 2.2 spaces for three or more bedroom units, or units larger than 1,400 square feet. The form of new small lot multi-family developments must complement the existing neighborhood fabric. Accordingly, the guidelines state that: The massing of new development should establish a residential frontage with street-facing, ground floor living areas and entrances. To be consistent with the front yard landscape of the surrounding neighborhood, new development should reduce the apparent amount of paved areas used only for autos. The massing should include articulated building walls and roofs to provide a sense of scale. The new development should acknowledge the building form and character of the neighborhood. Finally, similar to new multi-family developments, small-lot multi-family projects should provide useable open space. 4. Multi-Family Design Guidelines San Mateo considers the design and form of its multi-family buildings of high importance. Of over 37,000 households, 42 percent live in multi-family buildings. As property is redeveloped from lower density single-family housing to larger multi-family projects, it can significantly alter the character of the neighborhood. This was a concern expressed during the previous General Plan update process in The multi-family design guidelines require that all projects on parcels greater than 10,000 square feet and within the R3, R-4, R-5, R-4D, R-5D, R-6D, /R-4, 2-16

17 /R-5 and /R districts must conform to the guidelines. Following is a summary of the key features of the guidelines: New developments should be visually divided such that they are consistent with the dominant neighborhood pattern of 30- to 50- foot wide buildings. New developments should avoid height increases of more than one story from adjacent structures and construct taller portions of the structure at typical building widths. Living areas and entrances should be visually related to the street and living units should have individual identities. In neighborhoods where there is a dominant architectural style, the design should acknowledge the existing style and/or materials. Additionally, new buildings should reflect the intensity of existing detailing, especially windows and doors. To enhance security, entries and walkways should be visible from the street. Public areas should be open and visible. Parking should be located where it is least visible from the public view; garage entries that dominate the appearance of the building should be avoided. Open space should be provided as a mixture of walkable and planted areas that create comfortable microclimates. Larger developments of 20 or more units should have common areas for active or passive recreation. Utility and service functions should be screened from public view and preserve the privacy of residents and neighbors. G. Sustainable Initiatives Plan The Sustainable Initiatives Plan was prepared in 2007 by the Sustainability Advisory Committee. It includes recommendations to reduce San Mateo s carbon footprint through energy efficiency, transportation, and City operations; reduce water use; improve San Mateo s suburban forest; and expand 2-17

18 recycling and waste reduction opportunities. The Plan institutes these changes through community outreach and implementation measures. Many of the recommendations were incorporated into the General Plan Vision H. Green Building Ordinance On January 1, 2010, the City of San Mateo adopted a Green Building Ordinance, which applies to all new construction in the City. Municipal and commercial buildings are subject to the U.S. Green Building Council s (USGBC) LEED guidelines. Single-family and multi-family dwellings are subject to Build It Green s Green Point Rated (GPR) guidelines. Both of these systems place significant weight on the environmental benefits of infill and TOD. II. BAY MEADOWS PHASES I AND II The redevelopment of the former Bay Meadows racetrack has provided the City of San Mateo with important opportunities for the Hillsdale Caltrain station. The development of Phase I, on the eastern portion of the racetrack site that is nearly built out. Phase II is an 83-acre TOD with a mix of housing and commercial uses that will be developed over the coming years. The Phase II site is directly across the railway from the Plan Area. The following documents are key to understanding plans for Bay Meadows I and II. A. Bay Meadows Specific Plan The Bay Meadows Specific Plan was prepared in 1997 for the non-racetrack portions of the Bay Meadows property. The plan calls for a mix of singlefamily and multi-family homes, shopping, entertainment, amenities such as daycare, and a large office complex for Franklin Resources. These uses were 2-18

19 laid out on pedestrian-oriented blocks, and the area is connected to the Hillsdale Station via the Franklin Path. Phase I of the Bay Meadows Site is largely built out. The City recently completed a new Police Station on the southwest corner of Saratoga Drive and Franklin Parkway. A 64,000 square-foot Kaiser medical office building was approved by the City Council in January 2010 and is anticipated to start construction soon. The only remaining vacant parcels with no approvals are office building sites owned by Franklin Templeton. B. Bay Meadows Specific Plan Amendment The Bay Meadows Specific Plan Amendment covers the TOD planned to the east of the Hillsdale station and referred to as Bay Meadows Phase II. The design principles are consistent with policies outlined in previous efforts and direct Bay Meadows to: Recognize Regional Opportunities Strengthen an Emerging Center Invent a District Build a Station Make Connections Create Neighborhoods Shape Special Places Develop a Mixed Use Plan Streets planned for Bay Meadows Phase II connect with the existing street network in San Mateo. The extension of Delaware Street serves as the primary north-south access on the east side of the railway. There are significant improvements to the circulation network planned as part of the Bay Meadows II project. These will improve grade-separated east-west access over the Railway in the Plan Area. 28 th Avenue, a collector, and 31 st Avenue, an arterial, are planned as grade-separated railway crossings that will connect the Bay Meadows II project site to Saratoga Drive and Highway

20 Bay Meadows Phase II includes a mix of residential, commercial, and office like uses. Phase II capitalizes on the proximity to Caltrain to create a transitoriented plan with greater density of uses. The base program approved under the Plan allows a maximum of 1,250 residential units, 1,250,000 square feet of office/commercial space, and 150,000 square feet of retail space. However, there is a provision to allow substitutions of office space and housing units such that a maximum of 1,500 units, or 1.5 million square feet of office space, could be developed. The plan includes a total of 15 acres of new public parks, including a 12-acre community park two smaller 1.5-acre parks to be dedicated to the City as new public parks. Nearly three acres of publicly accessible open space, in the form of a Town Square and View Corridor are also required to be developed. In 2008, the City of San Mateo approved three Site Plan and Architectural Review (SPAR) planning applications for 17 of the 18 developable blocks at the Phase II project site. The 18th block (Mixed Use #1) is excluded because it includes the one-acre site designated for below market rate units. The 17 blocks were grouped into three planning applications based on land use and location for processing purposes. An illustration of Bay Meadows Phase II is provided in Figure 2-4. This illustration reflects the site plans and building footprints in the approved SPAR planning applications. Figure 2-5 shows the detailed development program that was approved in the SPAR planning applications, as follows: SPAR #1- Delaware Street Blocks: Station Blocks, Mixed Blocks (excluding Mixed Use #1), Residential Block #7 (includes Town Square), and the Linear Park (9 Blocks). Includes approximately 750,000 square feet of office space, approximately 93,000 square feet of retail/restaurant space, 392 residential housing units, the Town Square, the western portion of the View Corridor, and the Linear Park. SPAR #2- Southern Residential Blocks with a total of 330 single-family and multi-family residential units, the eastern portion of the View Corridor and Neighborhood Park (five blocks). 2-20

21 S treet C i t y o f S a n M a t e o H i l l s d a l e S t a t i o n A r e a P l a n E X I S T I N G C O N D I T I O N S R E P O R T R E L E V A N T P O L I C Y D O C U M E N T S Fiesta Gardens San Mateo County Exposition Center Saratoga Drive Community Park 28th Avenue Promenade 28th Avenue Neighborhood Parks 29th Avenue New Caltrain Station Pedestrian Easement Town Square Delaw are 30th Avenue Franklin Campus Phase I View Corridor South Bikeway (Franklin Path) 31st Avenue Existing CalTrain Parking Lot- Potential Future Garage Franklin Extension F I G U R E 2-4 B a y M e a d o w s P h a s e I I I l l u s t r a t i v e P l a n

22 C i t y o f S a n M a t e o H i l l s d a l e S t a t i o n A r e a P l a n E X I S T I N G C O N D I T I O N S R E P O R T R E L E V A N T P O L I C Y D O C U M E N T S Bay Meadows Phase II Development Program SPAR #1 SPAR #3 STA 1 98,059 sf Office & 6,365 sf Retail/ Active Use STA 2 176,915 sf Office & 10,889 sf Retail/Active Use & 3,050 sf Restaurant MU BMR units and Approx. 200,000 sf of Office or Approx. 100 Stacked Flats MU 2 88 Condos & 15,509 sf Office & 11,814 sf Retail/Active Use & 3,000 sf Rest. RES Condos RES 2 80 Townhouses RES Townhouses STA 3 159,415 sf Office & 8,769 sf Retail/Active Use & 3,281 sf Restaurant STA 4 186,690 sf Office & 8,627 sf Retail/Active Use & 3,477 sf Restaurant STA 5 95,785 sf Office & 4,098 sf Retail/Active Use Proposed JPB Lot MU 3 76 Condos & 12,906 sf Office & 12,361 sf Retail/Active Use RES 4 71 Condos MU 4 RES 6 70 Condos & 54 Condos 5,071 sf Office & 8,947 sf Retail/Active Use & 5,000 sf Rest. RES Condos & 3,472 sf Retail/Active Use RES 9 24 Single-Family Homes & 31 Condos/ Townhouses RES 8 74 Townhouses Note: The Floor Area numbers contained herein match the SPAR 1 plan submittals dated March 10, 2008, the SPAR 2 submittals dated August 12, 2008 and the SPAR 3 plan submittals dated Sept 17, RES 5 76 Townhouses 750,350 sf Office 75,342 sf Retail/Active SPAR 1 Use Approved 17,808 sf Restaurant 4/21/ Residential units Linear Park/Town Square Western View Corridor SPAR Residential units Approved Neighborhood Park 10/14/08 Eastern View Corridor SPAR 3 Approved 344 Residential units 12/9/08 SPAR 4 Not Submitted SPAR #2 PROGRAM BMR units (City) -and- Apprx. 200,000 sf Office - or- Apprx. 100 Res.units F I G U R E 2-5 B a y M e a d o w s P h a s e I I L a n d U S e D i a g r a m

23 SPAR #3- Northern Residential Blocks with a total of 344 multi-family residential units (three blocks). C. Bay Meadows Phase II SPAR #1 Summary The SPAR provided a more detailed review of the site plans and building designs of each individual block at the project site and is the true implementation of the Specific Plan Amendment. The Bay Meadows Phase II SPAR 1 Summary document is an illustrated document that provides details regarding the design of Delaware street since SPAR 1 includes eight of the ten blocks along the street, as well as three very important open spaces, the Town Square, western View Corridor and Linear Park. The SPAR Summary includes two important appendices. The first, Delaware Street Phasing, provides an overview of how Delaware Street would be landscaped to ensure its success should construction of some of the retail and office buildings be delayed due to a trip cap in place until the planned gradeseparated railway crossings commence construction. A second appendix, Transit and Station Access, provides the most comprehensive overview of the station relocation. The focus here is on station access from the Bay Meadows project with three different station location scenarios. The scenarios include 1) the existing location of the station, 2) the current station platform extended north to just past the planned 31 st Avenue grade-separated railway crossings, and 3) relocation of the platform between 28 th and 31 st Avenue. The third scenario is the current preferred location based on City Council direction and is indicated on many of the maps in this report. Scenario 3 consists of partially raised tracks and sidewalks on both sides of 28 th and 31 st Avenues to ensure unrestricted pedestrian circulation to and from El Camino Real and South Delaware Street as well as to and from the overhead platform. There could be a pedestrian walkway behind Station Block No. 5 to and from the 2-23

24 raised platform to the potential Caltrain parking garage on the southern portion of the Block. III. EL CAMINO REAL TRANSPORTATION CORRIDOR PLANS The Hillsdale Station Area Plan will benefit from the effort that has gone into creating a vibrant corridor on El Camino Real, a new urban village in the Bay Meadows site, and a TOD to the Hillsdale Caltrain Station. Figure 2-6 shows the locations of these projects in relation to the Plan Area. El Camino provides the spine for existing and proposed residential, commercial, and transportation activity for these projects, so it is essential to understand the existing policies and guidelines that regulate this heavily-traversed corridor. A. El Camino Real Master Plan The El Camino Real Master Plan was adopted in November of It identifies opportunities for improving the safety and urban design of one of the most heavily-traveled, historic corridors in San Mateo. The Plan identifies heavy traffic volumes, poor pedestrian connectivity, and a lack of coherent urban design and identity as El Camino Real s constraints. The wide intersections pose a significant safety risk for pedestrians and reinforce the perception of an auto-dominated corridor. Building setbacks along the corridor vary widely, with small, irregular parcels that cannot accommodate necessary on-site parking. Combined with little landscaping, users and pedestrians of El Camino Real may find the environment stark, unsafe and of generally low visual quality. In response to the above constraints, the plan outlines the following recommendations: Create themed intersections at key transportation nodes. 2-24

25 Edison St S. El Camino Real C I T Y O F S A N M A T E O H I L L S D A L E S T A T I O N A R E A P L A N E X I S T I N G C O N D I T I O N S R E P O R T R E L E V A N T P O L I C Y D O C U M E N T S 24th Ave Saratoga Dr 26th Ave Lula Belle Ln W. 25th Ave Mary Lu Ln Palm Ave E. 25th Ave Delaware St Portola Dr Palm Ct Delmar Wy Garfield Ct Palm Pl 27th Ave Juniper St Hacienda St 28th Ave Garfield St 29th Ave Flores St Edison St 30th Ave Sylvan Ave Arbor Ln 31st Ave Briar Ln Arrowood Ln Louise Ln Hickory Ln Chestnut Ln Existing Train Station Mc Lellan Ave Curtiss St Winway Cir Hillsdale Blvd Pacific Blvd Poinsettia Ave Otay Ave 37th Ave 36th Ave San Benito St Oso St San Miguel Wy Feet Bay Meadows Specific Plan El Camino Real Master Plan and Grand Boulevard Initiative Grade Separation Footprint Study San Mateo Rail Corridor Transit-Oriented Development Plan Area Boundary F I G U R E 2-6 E X I S T I N G P L A N B O U N D A R I E S

26 Improve the corridor streetscape with a landscaped center median, street trees, and pedestrian amenities/crossing refuges. Study the removal of parking from El Camino Real. Explore parcel assembly. Explore a shared parking/parking district to alleviate pressure on the smaller parking constrained uses. Provide shuttle connections to the Caltrain station. Plan for mixed use developments that complement the Bay Meadows development. Included as part of the plan are General Corridor Design Guidelines. These guidelines serve as recommendations for improvement and redevelopment going forward. The plan makes recommendations for new policies and approval processes that outline several strategies for implementing the master plan within the framework of existing regulation. Specifically relevant to the Station Area Plan are the following: Theme Intersections : 25 th Avenue, including an expanded median, signage for the business district, streetlights, enhanced paving of crosswalks, and a redesign of the bus shelter. 31 st Avenue, including an expanded median, streetlights, enhanced paving of crosswalks, and a redesign of the bus shelter. Setback: 10 feet from the El Camino property line to create a 10-foot effective sidewalk. This concept is expanded upon in the City s Zoning Ordinance. Parking: Open parking areas must be separated from El Camino Real with a 6-foot landscape setback. 2-26

27 Minimize driveway entrance for new development, utilizing alleys or side street entrances instead. Buildings: Encourage traditional store fronts with windows and doors that are directly accessible from El Camino Real. Minimize blank walls to no more than 25 feet, use building materials that demonstrate coherence, durability and permanence. Corner buildings should have prominent corner features including entries, architectural features and distinctive materials. Buildings should occupy at least 50 percent of the El Camino frontage. An additional setback is allowed if a public amenity is provided. Building form should be consistent, with articulations, a step back above the second story, and massing scaled to the pedestrian. Signage: Primary signage should be integral with the building, respecting architectural elements, limited to the name of the primary tenant or overall complex. Multi-tenant complexes should have a coordinated sign program. Additional signage should be low profile and set back from the street. B. San Mateo Rail Corridor Transit-Oriented Development Plan The San Mateo Rail Corridor TOD plan was adopted in 2005 to provide a framework for world-class TOD development. It builds upon the El Camino Real Master Plan. The plan leverages investment in the Caltrain/High-Speed Rail corridor to create TOD focused areas around the Hillsdale and Hayward Park Caltrain station areas. Key benefits include: Improved access to the stations for multiple modes of transportation, with a specific emphasis on pedestrian access. 2-27

28 Mixed use development consistent with existing planning efforts. A mix of market rate and affordable housing. Class A office space in close proximity to the stations. Open space enhancements that include a large civic park (included in the Bay Meadows plans) and smaller neighborhood parks. Objectives of the plan relevant to the Hillsdale Station Area include: Concentrate development around the Hillsdale station. Improve the amenities and access to the station, include lighting, shelter, landscaping, parking and access. Create high-quality design for the station. Establish neighborhood-serving retail distinct from downtown San Mateo. Provide for open space around the station. Encourage shared parking. From the objectives and implementation goals, the plan recommends the following specific measures for the Hillsdale Station and surrounding areas. Create grade separations at 25 th, 28 th, and 31 st Avenues to improve local access for pedestrians, bicycles and autos. Revise intersections to increase pedestrian safety and avoid offset configurations. Create an additional themed intersection at 28 th Avenue that relates to the gateway intersections of 25 th and 31 st Avenues and Hillsdale Boulevard already identified in the El Camino Real Master Plan. Provide direct mid-block connections to the station. Develop several smaller parking garages/lots to accommodate the 1,360 spaces needed, as projected by the Joint Powers Board (JPB). 2-28

29 Create a viaduct structure for the tracks between 28 th and 31 st Avenues to facilitate connections, light and air. Improve shuttle access with drop-off locations near the central access point for the station. Develop mixed use residential development with ground floor retail that does not exceed 50 units per acre with an FAR of 2.0. Include a transit plaza between 28 th and 31 st Avenues that is at least 8,000 square feet. Limit building height to 55 feet. 1. Design Guidelines Create an attractive streetscape that prescribes trees and landscaping, pedestrian connections and bulb-outs, lighting, and street furniture that also have an appropriate transition into adjacent neighborhoods. Provide tree-lined sidewalks with clearly marked crossing areas. Station adjacent sidewalks 12 to 16 feet Mixed Use Areas 10 to 14 feet Neighborhoods 5 feet Design development that creates consistent street-walls oriented to the street with pedestrian scale elements. Design the station to have clearly visible connections, plazas and parks at the station and neighborhood and commuter serving retail. 2. Implementation Policies Parcels between 28 th Avenue and 31 st Avenue should be planned and redeveloped in a comprehensive manner. The cost of capital improvements should be borne by private land owners and other public fund sources that include: Development impact fees Tax Increment Financing Area of Benefit Fees (TIF) 2-29

30 Development Agreements Special Assessment Districts Mello-Roos Community Districts Federal and State Grants Landscape and Lighting Districts C. The San Mateo County Transportation Authority s Grade Separation Program Footprint Study Draft Project Report The footprint study is designed to find technically feasible approaches to grade-separated crossings of 25 th, 28 th, and 31 st Avenues across the Caltrain tracks. Currently, 25 th Avenue crosses the train tracks at-grade, so that traffic has to stop for passing trains. The other two streets do not currently connect to El Camino Real, as the Bay Meadows Race Track was a major barrier to the circulation network. The grade separations are funded by the San Mateo County Transportation Authority s Measure A, a sales tax measure passed by the County s voters in 2004 with the specific purpose of separating the streets crossing the Caltrain tracks from the train traffic. The funds provided as part of Measure A are not sufficient to separate all potential crossings, so the footprint study is part of a larger series of such studies designed to prioritize the grade separations. The footprint study examined 54 alternatives, 18 for each of the three intersections. The report did not specifically recommend which alternative should be chosen. Instead it identified the alternatives among the 18 that were considered feasible and gave an order of magnitude cost estimate for each. Initially, the footprint study found that some crossings at 28 th and 31 st Avenues were infeasible, but modified the analysis based on a request by the City of San Mateo that a relocated Hillsdale Station on elevated tracks be considered. The relocation of the train station would support TOD at Bay Meadows and in the Plan Area. In addition, there were few, if any, feasible options for grade-separation of 28 th and 31 st Avenues without relocating Hillsdale Station. 2-30

31 Generally, the cost for the new road alignments ranges from $90 to $300 million dollars per intersection, with the upper limit costs attributed to the relocation of the station and platform, as well as property purchases needed to secure right-of-way. In the staff report to a joint special study session of the City Council and Planning Commission on February 12, 2008 on the draft findings of the Footprint Study, staff made comments regarding each intersection. Creating a grade separation at 25 th Avenue could require property acquisition and would have access impacts to the adjacent businesses. The cost associated with the realignment was in the range of $90 to $130 million. As an alternative, the staff recommended closing this crossing. 28 th Avenue was considered to have the fewest impacts to adjacent properties with costs ranging from $55 to $195 million. Additional right-ofway has already been purchased, although more may be required. A 31 st Avenue crossing would impact parking and would require raising the grade of the tracks. Accordingly, costs range from $115 to $200 million. In this meeting, the Council members and Planning Commissioners made or re-affirmed the following general statements about the grade separations: Re-affirmed their preference that the location of the Hillsdale station be between 28 th and 31 st Avenues and that alternatives identified do not impact El Camino Real. Generally expressed an interest in the elevated track options for grade separation alternatives, but noted that more information was needed before they could provide any firm direction. Expressed concern regarding the negative impact that closing 25 th Avenue would have on businesses; however, a majority felt that it was in the City s best interest to study the issue so that all necessary information would be available prior to making any final decisions. They reiterated their support of local businesses on 25 th Avenue. 2-31