3 PROJECT DESCRIPTION

Transcription

1 3 This Initial Study/Negative Declaration (IS/ND) has been prepared for the Hillsdale Station Area Plan (the Plan) in accordance with the California Environmental Quality Act (CEQA). The Hillsdale Caltrain Station is located in the City of San Mateo, California. The City of San Mateo s preferred location for the station is roughly 300 feet to the north of the existing station along the existing Caltrain right-of-way (ROW) between 28 th and 31 st Avenues. The Plan contains land use, urban design, and circulation goals, policies, and actions to guide investment and development in an area within walking distance of the relocated Hillsdale Caltrain Station. A. Background Since the mid-1990's, the City of San Mateo and its residents have developed and refined a vision for development around the city's major transit stations. This vision for transit-oriented development (TOD) involves fostering the growth of pedestrian-friendly neighborhoods and employment centers in the vicinity of mass transit hubs and weaving them into the existing urban fabric. San Mateo s City Council has already adopted several planning documents that support the community-defined vision for TOD. These include the San Mateo Rail Corridor Transit-Oriented Development Plan, El Camino Real Master Plan, and the Bay Meadows Phase II Specific Plan Amendment. The Hillsdale Station Area Plan presents a significant opportunity to continue this work and promote the development of a TOD neighborhood around the Hillsdale Caltrain Station. The Hillsdale Station Area has been designated a Priority Development Area by the Metropolitan Transportation Commission (MTC) with the intent of stimulating development that supports regional goals for increased housing near transit, consequently reducing greenhouse gas (GHG) emissions by reducing vehicle miles travelled (VMT). 1 1 Vehicle Miles Travelled (VMT) is a measure of the extent of motor vehicle operation, representing the total number of vehicle miles travelled within a specific geographic area over a given period of time. 3-1

2 B. Project Location and Setting As shown on Figure 3-1, the Hillsdale Station Area (the Plan Area) is adjacent to the Hillsdale Caltrain Station in the City of San Mateo, San Mateo County, California. The Plan Area lies between US Route 101 and Interstate 280, south of State Route 92. El Camino Real bisects the site from the northwest to the southeast. 1. Plan Area Boundaries and Context The Plan Area encompasses approximately 150 acres of land located predominantly to the west of the Caltrain ROW, as shown on Figure 3-2. The Plan Area boundaries have been drawn to generally encompass the area within walking distance of the relocated Hillsdale Caltrain Station; however, the Bay Meadows Phase II project site, which is the subject of a separate specific plan, and the established residential neighborhoods west of Flores and Edison Streets, which have few opportunity sites for development, are not included in the Plan Area. Land uses surrounding the Plan Area include residential neighborhoods to the north and west, the Hillsdale Garden Apartments complex to the south, and the Bay Meadows Phase II project site to the east, across the Caltrain ROW. Additionally, there are existing retail areas along El Camino Real to the north and south of the Plan Area. Bay Meadows Phase II was approved through a Specific Plan Amendment by the San Mateo City Council in 2005 and is expected to be completed by Site Plan and Architectural Review planning applications were approved in 2008 that allow the construction of up to 1,066 residential units; 840,000 square feet of office, commercial, and retail space; and 15 acres of public parkland. Infrastructure construction is currently underway. 2. Caltrain Infrastructure Improvements The Hillsdale Caltrain Station is the anchor of development in the Plan Area. Separate from the proposed Plan, several potential and planned improvements 3-2

3 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 I S / N D P R O J E C T D E S C R I P T I O N!( San Francisco City of San Mateo!( Fremont Plan Area San Mateo County San Jose!( Miles Source: GillSans Light, 7.5 pt. F I G U R E 3-1 R E G I O N A L L O C A T I O N

4 S. El Camino Real CITY OF SAN MATEO 26th Ave Lula Belle Ln W. 25th Ave Mary Lu Ln 24th Ave Palm Ave E. 25th Ave Delaware St San Mateo Event Center Saratoga Dr 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 Bay Meadows Phase II 30th Ave Sylvan Ave Preferred Location for Relocated Hillsdale Station Briar Ln Arbor Ln Louise Ln Hillsdale Park Arrowood Ln Hickory Ln Chestnut Ln 31st Ave Hillsdale Shopping Center Existing Train Station Mc Lellan Ave Curtiss St Winway Cir Edison St Hillsdale Blvd Pacific Blvd Poinsettia Ave Otay Ave 37th Ave Plan Area Boundary 36th Ave San Benito St Oso St Feet San Miguel Wy Railroad FIGURE 3-2 PLAN AREA (EXISTING CONDITIONS)

5 to Caltrain infrastructure are currently being considered. These include the relocation of the station, grade separation of ROW crossings, and electrification of the train system. The relocated Caltrain station would continue to serve as a multi-modal transit hub, housing Caltrain heavy rail commuter train service, Sam-Trans and AC Transit bus service, employment shuttles, and parking for transit patrons in a single, centralized location. Proximity to surrounding commercial, retail, and residential uses, including the Hillsdale Shopping Center and the Bay Meadows development, would enhance ease of access to transit and promote public transportation and walking as viable alternatives to driving. In parallel with station relocation, Caltrain is also considering the grade separation of 31 Caltrain ROW crossings in San Mateo County. Additionally, the ongoing Caltrain Electrification Program would convert a substantial portion of existing Caltrain diesel-powered passenger rail service to electric operation by 2015, thereby increasing service and ridership. In addition to Caltrain service, the Caltrain ROW is currently being evaluated by California s High Speed Rail Authority for High Speed Rail (HSR) service up the Peninsula. This potential service is being evaluated through a series of environmental documents, including program and project level Environmental Impact Statements and Environmental Impact Reports. 3. Existing Uses in the Plan Area Existing land uses in the Plan Area are primarily commercial and residential. El Camino Real is the principal commercial corridor, with a mix of commercial uses in different configurations, ranging from small buildings fronting the street to strip malls with off-street parking. The Hillsdale Shopping Center, a regional commercial attraction, is located at the intersection of El Camino Real and Hillsdale Boulevard. 25 th Avenue is lined on both sides with neighborhood-serving stores and office space. Multi-family residential uses range from the garden-style, multi-family buildings of the Hillsdale Garden Apartment complex in and around the southwestern corner of the Plan Area, 3-5

6 to a variety of duplexes, townhomes, and multi-family homes concentrated in the northern and western portions of the Plan Area. Significant public facilities in the Plan Area include the existing Hillsdale Caltrain Station at Hillsdale Boulevard and El Camino Real, a vacant fire station at 27 th Avenue and Edison Street, and an AT&T central switching building located at the southeast corner of Edison Street and 28 th Avenue. The Caltrain ROW runs north to south along the eastern perimeter of the Plan Area. 4. Transportation and Parking a. Transportation The Plan Area is served by three major regional transit agencies: Caltrain, San Mateo County Transit District (SamTrans), and the Alameda Contra Costa Transit District (AC Transit), all of which serve the current Hillsdale Station and would also serve the relocated Transit Center. Caltrain provides commuter heavy rail service between San Francisco and Santa Clara County. Along this line, Hillsdale Station has the seventh highest volume of riders. It is served by 71 trains daily on weekdays and an average of 30 trains daily on weekends. Weekday express trains, called baby bullet trains, make the trip to San Francisco in approximately 25 minutes and to San Jose in about 30 minutes. AC Transit operates a regional Transbay bus route, Line M, connecting Union City and Castro Valley BART stations to Foster City, Menlo Park, and San Mateo. Line M serves Hillsdale Station with 30 minute headways on weekdays and 60 minute headways on weekends. SamTrans operates 10 bus routes connecting the Plan Area to destinations throughout the County, although many of the routes run only once an hour. Figure 3-3 shows transit routes serving the Plan Area. Additionally, seven shuttle services offer connections from Hillsdale Station to employment centers, shopping destinations, and other transit stations in the surrounding area. El Camino Real and Hillsdale Boulevard are the two principal arterials in the Plan Area. El Camino Real has six lanes running roughly north-south 3-6

7 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 I S / N D P R O J E C T D E S C R I P T I O N LEGEND Source: SamTrans, Kimley-Horn and Associates, Inc. F I G U R E 3-3 T R A N S I T R O U T E S S E R V I N G T H E P L A N A R E A

8 through the Plan Area, while Hillsdale Boulevard is a four-lane roadway which crosses the Caltrain tracks from east to west. The two arterials intersect just south of the existing station. Two collector roads, 28 th Avenue and 31 st Avenue, run west to east in the Plan Area terminating at El Camino Real. Bicycle infrastructure in the Plan Area includes Class III lanes 2 shared with vehicles on 25 th Avenue and Hillsdale Boulevard and 34 bicycle parking spaces at Hillsdale Station. The pedestrian environment features sidewalks, safety lighting, and striped crosswalks served by on-demand signals in the vicinity of the station. Along the principal roadways however, sidewalks are generally 4 to 6 feet wide and there are few trees or amenities to help separate pedestrians from vehicular traffic. b. Parking There are currently 518 parking spaces available to Caltrain riders in four surface parking lots around the existing station. The lots are shown on Figure 3-2. The three lots to the west of the Caltrain ROW are accessed from El Camino Real, while the lot to the east of the tracks is accessed from Hillsdale Boulevard via a cloverleaf-shaped on-ramp. 5. Existing Housing and Population In 2009, there were approximately 1,200 residents in the Plan Area with a median age of 39.7, which is comparable to the median age for the City and County of San Mateo. 3 Average household size in the Plan Area was 2.23 persons, which is also comparable to average household size for the City as a whole. However, the Plan Area had a significantly higher percentage of renters (81.5 percent) than the City of San Mateo as a whole (46.6 percent). At $55,108, the median annual household income for the Plan Area was also sig- 2 Class III Bike lanes are shared lines with sufficient width to accommodate vehicles and bicycles. They are designated only with signs posted to indicate the route. 3 City of San Mateo, Hillsdale Station Area Plan Existing Conditions Report, pages 5-2 to

9 nificantly lower than the median annual household income for the City of San Mateo ($76,362). As described above, housing in the Plan Area is predominantly multi-family units, although there is a range of housing types available, including duplexes, townhomes, apartments, and single-family homes. The exact number of dwelling units currently in the Plan Area is not available; however, based on an average household size of 2.23 persons, it is estimated that there are approximately 550 existing housing units Natural Environment The Plan Area is almost entirely developed, with few green spaces and only a limited number of street trees. Laurel Creek is the most significant natural feature of the Plan Area. It is a channelized watercourse with partially paved banks, and it runs west to east along the southern perimeter of the Plan Area near the Hillsdale Garden Apartment complex. The path of the creek is partially landscaped and includes a footbridge. C. Plan Objectives The Plan identifies the following guiding principles: 1. Promote TOD 2. Enhance Connections and Station Access 3. Encourage Pedestrian-Oriented Development on El Camino Real 4. Ensure Quality Development 5. Improve the Identity of the Station Area 6. Provide a Range of Housing Choices 4 1,227 residents / 2.23 avg. household size = dwelling units. 3-9

10 D. Project Characteristics The Plan establishes a regulatory framework for future development within the Plan Area, integrates the relocated Hillsdale Caltrain Station into existing urban and circulation systems, and develops strong connections to Bay Meadows Phase II and surrounding neighborhoods. Figure 3-4 shows the proposed concept plan, illustrating conceptual buildings that could be constructed consistent with the City of San Mateo s General Plan and zoning designations for parcels within the Plan Area. Actual development under the Plan, however, may differ from the Illustrative Plan as long as it achieves the goals of the Plan and is consistent with City regulations. The principal components of the Plan are described below. 1. Mixed-Use Residential Development The Plan proposes a total of approximately 750 new dwelling units. Approximately half of these units would be concentrated in 3- to 4-story mixeduse buildings lining El Camino Real and 28 th Avenue in the northern part of the Plan Area, as shown on Figure 3-4. Additional housing would be provided in 3- to 4-story multi-family buildings located to the north and south of the relocated Caltrain Station, including housing to the south of Laurel Creek. 2. Circulation and Parking Improvements The Plan proposes a number of improvements to the circulation system with the aim of integrating the relocated station into the surrounding community, improving the pedestrian experience, and providing connections with the adjacent Bay Meadows Phase II development. A new signalized intersection would be created on El Camino Real north of 31 st Street to provide an entrance to the Transit Center and enhance east-west connections in the Plan Area. The new pedestrian crosswalks would be striped and equipped with pedestrian-activated signals or warning lights. The Plan also proposes bus stops in front of the Transit Center on El Camino Real. 3-10

11 C I T Y O F S A N M AT E O S TAT I O N A R E A P L A N I S / N D P R O J E C T D E S C R I P T I O N H I L L S D A L E Ϯϱd, s ^ E D d K KhEdz s Ed Ed Z Ϯϱd, s Eh h^/e ^^ /^dz/ d Ϯ ϳ d, s ^ ^ d Ϯ ϴ d, s &>KZ W E/E^h> ^d d/ke dz E^/d Ed Z Z > ϯ ϭ ^d s z D Kt^ W, ^ // > D /E K,/>>^ > W Z<,/>>^ > ^,KWW/E' Ed Z,/ >> ^ > > hz > Z ϯ ϲ d, > s < s WůĂŶ ƌğă ŽƵŶĚĂƌLJ DŝdžĞĚͲhƐĞΎ ^ƵƌĨĂĐĞ WĂƌŬŝŶŐ džŝɛɵŷő ůăɛɛ / ŝŭğ &ĂĐŝůŝƚLJ džŝɛɵŷő ůăɛɛ /// ŝŭğ &ĂĐŝůŝƚLJ ZĂŝůƌŽĂĚ ZĞƐŝĚĞŶƟĂů WŽĚŝƵŵ WĂƌŬŝŶŐ /ŶƚĞƌŝŽƌ ŽƵƌƚLJĂƌĚ &ƵƚƵƌĞ ůăɛɛ / ŝŭğ &ĂĐŝůŝƚLJ &ƵƚƵƌĞ ůăɛɛ /// ŝŭğ &ĂĐŝůŝƚLJ džŝɛɵŷő ƵŝůĚŝŶŐ ZĞƚĂŝů WůĂnjĂ KƉĞŶ ^ƉĂĐĞ džŝɛɵŷő ůăɛɛ // &ĂĐŝůŝƚLJ džŝɛɵŷő dğŵɖžƌăƌlj ŝŭğ &ĂĐŝůŝƚLJ dƌăŷɛŝƚ ĞŶƚĞƌ ŽƵŶĚĂƌLJ ^ƚƌğğƚɛđăɖğ /ŵɖƌžǀğŵğŷƚɛ &ƵƚƵƌĞ ůăɛɛ // ŝŭğ &ĂĐŝůŝƚLJ EKZd, Ϭ ϭϱϭ ϯϭϭ &ĞĞƚ ΎZĞƚĂŝů Žƌ ŽĸĐĞ ǁŝƚŚ ƌğɛŝěğŷɵăů ĂďŽǀĞ FIGURE 3-4 PROPOSED CONCEPT PLAN

12 The Plan also calls for a new five-story parking structure to be built adjacent to the station building as warranted by Caltrain ridership. The parking structure would provide approximately 600 spaces for the exclusive use of transit riders. The parking structure would include a pedestrian bridge to provide a direct link to the Caltrain platform from the second level of the structure. Pedestrian circulation on El Camino Real would be improved through the provision of wider sidewalks. The existing curb-to-curb width would remain unchanged, but with changes in setbacks of properties fronting onto El Camino Real, a consistently widened sidewalk would be created. Additionally, the median on El Camino Real would be widened and trees would be planted on it. Proposed bicycle circulation improvements include Class III bicycle lanes north and south along Flores and Edison Streets. It would also enhance east-west travel along 28 th and 31 st Avenues to provide additional connections to the residential, office, and commercial uses proposed on the adjacent Bay Meadows Phase II project site through both Class I and Class III routes. Figure 3-4 shows proposed improvements to the circulation system. 3. Neighborhood-Serving Commerce and Retail Buildout under the Plan would result in approximately 10,000 square feet of net new commercial and retail space strategically located near the transit center and along El Camino Real as shown in Figure 3-4. New commercial and retail space would target transit users in addition to serving new residents of the surrounding community. Depending on market conditions, approximately 50,000 square feet of existing service commercial space including automotive repair shops, machinery sales, and warehousing space could be replaced with approximately 60,000 square feet of local retailers and other commuter- and neighborhood-serving stores, over the course of the 20-year Plan horizon. 3-12

13 4. Urban Design Improvements The Plan proposes the redevelopment of parking lots and large blank walls along 31 st Avenue to create a network of pedestrian-scaled storefronts and outdoor cafes. Small plazas are proposed in building setbacks along El Camino Real, where this main commercial thoroughfare intersects with 28 th Avenue, 31 st Avenue, and Hillsdale Boulevard. Outdoor seating, benches, fountains, landscaping, trees, and performance spaces would be provided in the plazas. Design of the plazas would incorporate stormwater management features such as rain gardens, bioswales, and other stormwater best management practices (BMPs). The Plan includes urban design guidelines and standards that would apply to these improvements. 5. Buildout Projections Pursuant to Section of the 2010 CEQA Guidelines, consideration of significant environmental effects should include identification and discussion of changes induced in population distribution, population concentration, and the human use of the land (including commercial and residential development). In order to capture as many significant environmental effects as could reasonably be expected as a result of the project, CEQA analysis typically assumes a reasonably foreseeable level of development, accounting for market forces as well as anticipated public and non-profit investment. For a programmatic evaluation of a land use plan, this entails projecting buildout figures which are then carried through the environmental review process. Projections are based on an evaluation of the Plan Area which identified opportunity sites and calculated net new buildable area by use, subtracting the square footage of buildings that would be expected to be demolished. The number of residential units was derived by assuming 50 dwelling units per acre of residential use, the maximum allowable under current zoning, which may represent the higher end of achievable densities in the Plan Area. This calculation results in a net change of approximately 750 new dwelling units, 10,000 square feet of general commercial uses, a reduction of 50,000 square feet of service commercial uses, and a reduction of 9,000 square feet of restaurant uses. No change in office uses is projected. 3-13

14 These figures are largely market driven, such that demand for the housing units will need to be established in order to support their construction. The market will continue to fluctuate over time, so the buildout figures are not absolute. Population increase was determined by multiplying the number of new residential units by the average household size of 2.23 in the Plan Area in The anticipated population and employment growth in the Plan Area is consistent with the amount of growth anticipated under the General Plan in the area, since there are no proposed changes to the General Plan land use designations, zoning classifications, or maximum permitted building heights, densities, and intensities. The Plan provides additional detail as to how the Plan Area will be developed, but it would not allow more growth than that which is already permitted by the regulations mentioned above. Growth in the Plan Area is concentrated along transit corridors, supporting use of transit, walking, and bicycling as transportation, consistent with the goals of the General Plan as well as the Hillsdale Station Area Plan. This development pattern is expected to minimize potential impacts, such as traffic congestion and air pollution, while supporting regional planning efforts to concentrate development around transit. E. Policy Setting The City of San Mateo General Plan Vision 2030 EIR (Vision 2030 General Plan EIR) was certified by the City Council on October 18, 2010 with adoption of findings and a statement of overriding considerations since the EIR identified significant, unavoidable environmental impacts. The Council then adopted the General Plan to establish a framework for the future growth and development of the City while preserving the high quality of life that San Mateo residents currently enjoy. Additionally, Measure P building height 3-14

15 limits were incorporated into the Vision 2030 General Plan. 5 The City's Zoning Ordinance implements the General Plan through zoning districts and overlay zones, including a TOD zoning district that implements the San Mateo Rail Corridor Transit-oriented Development Plan. Other policy documents that would guide future development in the Plan Area include: the City's Below Market Rate (BMR) Inclusionary Program, Residential Design Guidelines, Sustainable Initiatives Plan (2007), California Building Code (2007), and Green Building Ordinance (2010). F. Implementation Implementation of the Plan would follow a phased process. The City Council would approve the IS/ND and adopt the Plan, as well as associated changes to the General Plan and Zoning Code. Next, Plan implementation would take place in three phases: 1. Prior to Hillsdale Station Relocation: Focus on infill development, and planning for station relocation. 2. Grade Separation and Hillsdale Station Relocation: Grade separations at 25 th, 28 th, and 31 st Avenues and the relocation of the Hillsdale Station. 3. Fill in the Gaps: Complete any remaining parking structures, work with the Hillsdale Shopping Center on enhancements, and improve connectivity between the Transit Center and the rest of the Plan Area. 5 Measure P extends the provisions of Measure H beyond the horizon year Measure P provisions are intended to preserve the suburban character of San Mateo while accommodating continued economic development and increased opportunities for affordable housing construction in the City. 3-15

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