Cities Index.
Study Session Memo

Mountain View City Council
November 7, 2023

Document
Study Session Memo
Meeting
November 7, 2023
Body
Mountain View City Council
Pages
18
Original file
1.1 MB
Text extracted from the city's file for reading and search. Open the original on legistar1.granicus.com. That file is the official record.

DATE:

November 7, 2023

TO:

Honorable Mayor and City Council
FROM:

Diana Pancholi, Principal Planner
Eric Anderson, Advanced Planning Manager
Aarti Shrivastava, Assistant City Manager/
Community Development Director

VIA:

Kimbra McCarthy, City Manager

TITLE: Downtown Precise Plan Comprehensive Update,
Scope of Work, and Determination of Temporary
Office Cap

PURPOSE

Introduce the Downtown Precise Plan Comprehensive Update to the City Council and receive direction on the potential scope of work and key topics for the project and on the related temporary office cap.

BACKGROUND

Originally adopted in 1988, with subsequent amendments in years 2000, 2001, 2004, 2015, 2018, and 2022, the Downtown Precise Plan (DTPP) has served as a foundational framework for guiding both private development and public improvements within the City's core. The Plan has been instrumental in shaping the evolution of downtown, characterized by a vibrant mix of civic functions, cultural events, a thriving residential community, and a historic commercial district.

Over the past 25 years, downtown has undergone significant transformations driven by shifts in economic markets and changing urban dynamics. Concurrently, the City's prio rities and vision have evolved, necessitating a comprehensive reevaluation of the goals and policies outlined in the Downtown Precise Plan.

A comprehensive update to the Downtown Precise Plan —P(19) is an integral part of the City’s ongoing focus on downtown-related issues.

Downtown PP Update Phase 1—In 2019, the City Council endorsed a two -phased approach to updating the DTPP and added Phase 1 to the Council Fiscal Year 2020 -22 Work Plan. The DTPP Update Phase 1 focused on limited topics related to Precise Plan Subareas A, G, and H regarding design guidelines and minimal ground-floor land use changes. Phase 1 updates were adopted in December 2022. At the adoption hearing, the City Council discussed reviewing land use, design, and parking standards in the entire DTPP area as part of Phase 2 updates in the future.

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Downtown Precise Plan Update Comprehensive Update ( Phase 2)—The project is included in the City Council’s Fiscal Year 2023-25 Work Plan outlining key projects aligned with their Strategic Priorities, including “Intentional Development and Housing Options .” This priority focuses on themes such as increasing the quantity and diversity of housing options and planning for neighborhoods with nearby transit, jobs, and amenities that balance density with livable, green, mixed-use development.

Downtown Precise Plan

The DTPP covers approximately 100 acres and includes the historic retail core of the City as well as a mix of office, residential, and civic uses. It is anchored by the Transit Center at the north end of the Plan area and stretches to El Camino Real in the south. The Plan also includes properties one to two blocks from Castro Street, accomodating residential transition areas betwee n the commercial core and the largely single -family neighborhoods that surround it. The Precise Plan area also includes the Parking Assessment District, which allows for the collection of assessments to fund the maintenance and construction of the City’s downtown public parking facilities. The current Precise Plan area is shown in Figure 1. The Precise Plan area is divided into 10 planning subareas (A through J) and includes specific development and design frameworks, characteristics, and development potential specific to each subarea.

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Figure 1: The Current Precise Plan Area

Past Council Direction Related to the Downtown Precise Plan Comprehensive Update (Phase 2)

Through the review of numerous development proposals and recent economic vitality strategy discussions, Council has expressed interest in updating different sections of the Precise Plan to address current development trends and the community’s vision. Topics that have been articulated by Council as potential areas for study include: appropriate and updated mix of land use categories; parking; heights and intensities; historic preser vation; architectural design; and permit processes.

Specific direction from the City Council on three recent and ongoing policy projects related to this comprehensive update project are listed below.

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A. Downtown Parking Strategy—City Council Adoption Hearing, November 9, 2021

1. Update Precise Plan Parking Standards.

2. Update the Parking District boundary and fees.

3. Expanded Access to Existing Parking Supply.

4. Draft and adopt a Citywide TDM Ordinance, including downtown.

5. Adopt new Citywide bicycle parking requirements, including downtown.

6. Implement new Downtown Permit Program. Launch affordable parking program.

B. Downtown Precise Plan Update Phase 1 —City Council Adoption Hearing, December 12, 2022

The following items were comme nts directly relating to a comprehensive (“Phase 2”) update to the Precise Plan:

1. Review wider sidewalks and internal pathways, particularly where taller buildings are allowed.

2. Follow up for ground-floor windows: Review whether standards can be added to help with activating windows of vacant spaces and to discourage mirrored windows on the ground floors of existing buildings.

3. Address lighting for security in public areas and review new security lighting and Dark Sky requirements in the comprehensive update. Staff notes that the Dark Sky Ordinance is a Council work item that will be followed up separately and will be applicable Citywide, including the DTPP area.

4. Review limits on the width of ground -floor lobbies along the Castro Street frontage with the intent to ensure an active streetscape.

5. Evaluate disallowing nonpublic food uses on the ground -floor street frontage along Castro Street and key streets.

6. Evaluate requirements for building e ntrances and ground-floor uses along the street to be at, or generally near, grade level.

C. Economic Vitality Strategy—City Council Study Session, September 26, 2023

1. Add Placemaking as a goal and strategy—Branding differentiation for downtown and other Village Centers and new districts created in recent Precise Plans and include upgraded signage, facade improvements, and design assistance.

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2. Evaluate best practice tools to deal with blight related to vacant properties, ranging from incentives , or “carrots ,” such as providing consultation/grants for storefront window treatment and/or facade improvements to stricter measures , or “sticks ,” such as code enforcement, vacancy tax, or other options.

3. Prioritize creation of a Rapid Response Team to help small businesses with permitting.

Housing Element Programs

While the Housing Element does not mandate new densities downtown, there are several programs in the Housing Element related to downtown:

• Program 1.1: The Downtown Transit Center must be rezoned to allow at least 75 dwelling units per acre by December 2025. The Transit Center is within the Evelyn Station Precise Plan but is adjacent to the DTPP. This rezoning will happen s eparately from the DTPP comprehensive update to ensure that it can be completed by the deadline.

• Program 1.2: The DTPP must be amended to remove minimum parking requirements for residential developments by December 2024. This amendment will be separately conducted to ensure that it can be completed by the deadline and will include other areas identified in the Housing Element where minimum parking requirements for residential developments are to be removed.

• Program 4.5: At least 65 units of affordable housing must be generated downtown within the Housing Element cycle. If these units are not proposed through the BMR program, the City will issue an RFP for an affordable housing project on a City -owned site by December 2027. During the comprehensive update process, the City will evaluate option s for affordable housing sites.

PROJECT OVERVIEW

The DTPP comprehensive update project will update the vision for downtown and amend standards, processes, and guidelines within the existing Precise Plan document. This update will focus on fostering a vibrant and sustainable development environment in downtown, aligning it with the evolving needs and preferences of the community and ensuring that it remains an attractive and functional core of the City for years to come.

At this stage of the process, staff is requesting feedback and direction from the Council regarding the scope of work that will shape the work plan and outreach strategy. Therefore, this Study Session memorandum introduces essential subject areas without delving into detailed Downtown Precise Plan Comprehensive Update, Scope of Work, and Determination of Temporary Office Cap
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discussions. A more in -depth exploration of these topics will occur, and Council's direction on these areas will be solicited during subsequent Study Sessions. These sessions will be organized in response to insights gained from public outreach, engagement, analysis, and reviews conducted by the Environmental Planning Commission (EPC). A draft for the Council's final consideration will be formulated upon the conclusion of the Study Sessions.

DISCUSSION

Scope of Work

Based on previous Council direction and experience with preparing other Precise Plans, staff has identified the following topics, elements, and deliverables in Table 1 to include in the project scope. Staff is seeking Council input on key topics listed below to define the Precise Plan Update’s focus and scope of work. In the course of this project, the staff will concentrate on evaluating the downtown experience for visitors, residents, pedestrians, bicyclists, and business owners.

The aim is to explore how the various topics mentioned below can enhance the overall downtown experience.

Table 1: Scope of Work

Topic Elements Deliverables

1. Land Use Mix Update land uses to reflect business
needs and community vision such as
increasing housing opportunities,
reducing vacancies, serving as a hub
for the City and region.

Require and promote active, customer-
oriented commercial businesses along
Castro Street.

Revise development densities and
intensities.

Revise development standards.

• Retail/restaurant/
services/experiential
retail demand study

• Density prototype
analysis, focused on
small parcels

• Development
feasibility analysis

2. Objective
Development
Standards
Establish clear and objective
development standards to provide
consistency and transparency in the
development review process.

• Character and massing
studies
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1 A pattern book is a document containing the different patterns and components that create the fabric and context of an area and identifies the elements necessary for retaining and enhancing its character as new development, improvements, and changes are considered.
2 AB 2097 is a California law that prohibits public agencies or cities from imposing a minimum automobile parking requirement on most development projects located within a one-half-mile radius of a major transit stop, starting January 1, 2023.

Topic Elements Deliverables

3. Streetscape
Standards
Enhance and update streetscape
standards and develop a
comprehensive program for pedestrian
and bicycle access into, out of and
within downtown, while also
considering the needs of other modes.

• Circulation plans

• Streetscape diagrams

4. Design
Standards
Create objective design standards to
clarify requirements and ensure that
development contributes positively to
the public realm and downtown’s
traditional and historic character.

• Architectural styles
and themes study

• Pattern book1

5. Parking and TDM
Regulations
Revise parking regulations to comply
with recent State Legislation (such as
AB 2097)2 and include elements from
the Downtown Parking Strategy and
TDM Ordinance to manage public
parking resources efficiently, assure
there is an adequate number of public
electric vehicle supply equipment
installed parking spaces and parking
spaces that are accessible to persons
with disabilities when a property
owner is allowed to pay in-lieu fees
instead of installation of these types of
parking spaces per AB 2097, reduce
the reliance on single-occupancy
vehicles, and increase alternative
transportation options.

• Parking demand
analysis based on
proposed land uses

• Maximize effective
and efficient use of
public and private
parking

• Downtown trip-
reduction strategies

6. Signage
Regulations
Maintain a visually appealing and
navigable pedestrian-oriented, urban
environment, ensuring businesses can
• Best practices, signage
type/style options
that are appropriate
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Topic Elements Deliverables
convey their messages while
preserving the character and
aesthetics of the district.
for downtown
environments

7. Other
Development
Strategies
Explore other development strategies
to achieve community goals, such as
Bonus FAR for community benefits or a
jobs-housing linkage strategy.
• Various strategy
approach analyses
similar to those used
in other Precise Plans

• Economic feasibility
analysis

8. Permitting
Process
Streamline permitting processes to
support desired uses and development
and add transparency and clarity to the
process.
• Benchmarking, best
practice, and
development review
process options

9. Public Art and
Placemaking
Consider public art and placemaking
strategies to allow and support
engaging, interactive, and varying
experiences that will draw visitors and
help define the City’s identity.
• Public art and
placemaking study,
focused on Mountain
View’s downtown and
civic identity and best
practices for activating
public and private
spaces

10. Cultural/Ethnic
Diversity
Provide for cultural/ethnic diversity
and inclusivity, including small business
retention
• Best practice studies
and policy options
that encourage
incorporation of
cultural and ethnic
diversity and focus on
the needs of small
businesses

11. Landscaping,
Trees and Open
Spaces
Standards for both public and private
property and the streetscape to
encourage increasing tree canopy,
native and drought-tolerant
landscaping, and create and enhance
open spaces and connections
throughout downtown.
• Tree canopy analysis

• Analysis to provide/
encourage a variety of
open space types that
enhance connections
and recreation
opportunities.

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Project Boundary

The DTPP includes one to two blocks on either side of Castro Street , roughly covering the transition to the surrounding single-family neighborhoods between Evelyn Avenue and El Camino Real. The DTPP area has a unique character which is very different from surrounding Precise Plans and Planned Community (P) Districts (see Figure 2—Downtown Vicinity Map). The adjacent Evelyn Avenue Corridor Precise Plan area is primarily residential and commercial with different characteristics from the downtown and is largely built out. The El Camino Real Precise Plan also went through a separate planning process and is currently being implemented through development projects since its adoption in 2015. Therefore, staff is not recommending a change in the DTPP area boundary at this time ; however, there may be an opportunity to modify the boundary of the Precise Plan through this process. For example, the Precise Plan may incorporate the Transit Center (after it has been rezoned pursuant to the Housing Element) or the Public Safety Building. These options may be further studied during the DTPP comprehensive update process.

Topic Elements Deliverables

12. California
Environmental
Quality Act
Conduct environmental review as
required under State Law and to
facilitate and streamline subsequent
developments.
• Environmental
documents

• Utility studies

• Other studies as
necessary

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Figure 2: Downtown Vicinity Map
Question 1: Does Council agree with or wish to revise either of the following:

a. Scope of Work in Table 1; or
b. Precise Plan boundary?

Benchmarks

Staff will also provide benchmarks and comparisons on what other cities are doing as they update their development requirements and processes to revitalize their downtowns and address new State laws. Currently, many other cities in the area (e.g., Campbell, Redwood City) are facing issues similar to those in Mountain View. The benchmarks will compare strategies related to revising land uses, standards, design requirements and process. Furthermore, staff will examine the strategies employed by other municipalities to tackle the challenge of parking supply and the funding of public parking districts when private development is no longer mandated to provide parking due to the passage of AB 2097 in 2022.

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Outreach and Engagement Process

Outreach Strategy

Given the significant importance of downtown and the widespread community interest in this project, a robust community outreach effort will be a foundation of this update project. The aim is to ensure that input is gathered from all corners of the City and its diverse population. This outreach effort will encompass the following key elements:

• Inclusive Stakeholder Engagement : Engagement will be inclusive, involving various stakeholder groups such as neighborhood associations; the business commun ity; property owners; Spanish, Chinese, and other language groups; and other organizations actively engaged in the City.

• Regular Updates and Dialogue : Continuous communication and engagement will be maintained with key bodies, including the Downtown Co mmittee, Environmental Planning Commission (EPC), and City Council. This will ensure that the project remains aligned with community goals and is informed by the expertise of these bodies.

• Citywide Public Notices : Key milestones will be widely noticed throughout the City. This will encourage residents from all neighborhoods to participate in the discussions and contribute their insights.

• Community Workshops and Forums : To facilitate meaningful dialogue, community workshops and forums will be organ ized to provide residents and stakeholders with opportunities to express their ideas, concerns, and vision for downtown.

• Project Website: In addition to in-person and virtual meetings, the City has also established a project webpage to provide regular progress updates and information related to upcoming meetings and events related to the project.

• Other Efforts as Needed: Other outreach could include information booths at popular locations and events, opportunities for staff to answer questions and hear concerns, informational materials available in multiple languages, at multiple locations , and with multiple media.

• Advisory Working Group Option: One of the options in the public outreach toolbox includes establishing an ad hoc advisory working group of key stakeholder s representing various interested groups . Establishing an advisory working group can be helpful when a multifaceted planning project involves a wide range of stakeholders, complex issues, and a need for local expertise. This approach fosters a consistent feedback mechanism, ensuring Downtown Precise Plan Comprehensive Update, Scope of Work, and Determination of Temporary Office Cap
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that the resulting plan is well-informed and representative of diverse perspectives. A recent example is the advisory working group established for the El Camino Real Precise Plan , which consisted of 24 people. The advisory group was not a voting body but focused on providing continued input on key topics in the Precise Plan. The group participated in approximately four meetings which helped in the development of the draft document that was brought forward for EPC and Council consideration.

Tentative Outreach Schedule : Community outreach meetings will be conducted at various stages throughout the update process targeting a broad spectrum of stakeholders. The estimated outreach effort plan is listed below:

Table 2: Outreach Details

Outreach Effort Intent Key Stakeholders

1. Pre-project Kick-off
Outreach (Complete)
Establish initial connections with
key community groups, gather
early input, and create awareness
about the project. See
Attachment 3 for a brief summary
of key themes identified in two
initial outreach meetings with
Chamber of Commerce and Old
Mountain View Neighborhood
Association.

Chamber of Commerce
and Old Mountain View
Neighborhood
Association (OMVNA)

2. Outreach After
Consultant Selection
Broaden engagement to include a
wider array of stakeholders after
selecting a consultant. Gather
diverse perspectives and input
during early plan development
phase.
* All stakeholders and
interested parties.

3. Outreach Prior to
Presenting Alternatives
to City Council
Ensure that the broader
community is informed and
engaged before specific
alternatives are presented to the
City Council. Generate awareness
and gather preliminary input.
* All stakeholders and
interested parties.

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Outreach Effort Intent Key Stakeholders

4. Outreach During
Development of
Preferred
Alternatives/Draft
Precise Plan
Gather input during the critical
phase of developing preferred
alternatives and the draft Precise
Plan. Engage stakeholders to
shape the Plan in alignment with
community needs and values.
* All stakeholders and
interested parties.

5. Ongoing—Topic-Specific
Outreach Efforts
Address specific issues or aspects
of the plan as they arise. Ongoing
outreach focused on particular
subjects as needed.

Varied, depending on
specific topics being
addressed.
_______________________
*NOTE: Include neighborhood associations, business associations, Downtown Committee, property owners, Youth Advisory Committee, Historical Association, school districts, tech companies, local developers, other advocacy groups and organizations, non-English-speaking groups, and interested parties.

Question 2:

a. Does Council have feedback regarding the proposed outreach approach?

b. Is Council interested in an advisory working group for this project? If so, does Council have feedback on the composition of the group?

If Council is interested in this approach, staff will bring back options for an advisory working group based on Council feedback.

Downtown Temporary Office Cap

The City Council F iscal Year 2023-25 Work Plan includes a Priority A project to “explore implementing a temporary downtown office cap on new development .” Council discussion related to office development for past projects such as 590 Castro Street have included a focus on achieving a more balanced jobs-housing ratio, mitigating parking spillover into neighborhood streets, promoting ground-floor activation, preserving the visual and aesthetic character of the downtown, and providing support to small businesses. The short -term limit on office development is intended to offer time to allow for the implementation of the DTPP, which will address these issues . Staff would bring options for Council consideration related to the temporary office limit at a Study Session in 2024.

Currently, there are several office projects in the development /building permit review pipeline, as shown in Table 3.

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Table 3: Office Projects in the Pipeline

Address Office
Square Footage
Status
Hope Street Lot 8 49,000 Approved, building permits under review 701-747 West Evelyn
Avenue
28,000 Approved, revision with Development
Agreement to be heard at this meeting
676 West Dana Street 2,000 Approved
747 West Dana Street 7,000 Approved, building permits under review 756 California Street 5,000 Approved
590 Castro Street 85,000 Approved
705 West Dana Street 15,000 Under review, tentatively scheduled for November 14, 2023 Council meeting
194-198 Castro Street 6,000 Under review

Key elements of the Downtown Temporary Office Cap will include: (i) timeline of the temporary cap; (ii) project size threshold (smaller projects can be exempted) ; and (iii) pipeline exemptions (to allow projects already in the review pipeline to move forward). Staff will also conduct stakeholder outreach , including property and business owners, the Chamber of Commerce, residents, and developers. Staff is seeking Council input prior to bringing the item back for a discussion at a Council Study Session.

Key stakeholders, including the Chamber of Commerce, have raised reservations regarding the proposed temporary office cap office. They are concerned that this measure could be seen as an impediment to development and might hamper other investment opportunities, especially in the retail and restaurant sectors. Moreover, the current economic conditions and the vacancies in the office sector have decreased the potential for new office development projects.

In light of these considerations, staff is requesting direction from the City Council on whether to proceed with this project.

Question 3: Does Council support:

a. Removal or delay of the temporary office cap item in the Council work plan?

b. Or, alternatively, does Council wish to move forward with the temporary office cap item as a priority item in the current Council work plan and schedule the item for discussion at a future Study Session?

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Internal City Coordination

There are currently a number of significant City-led projects that are ongoing in parallel with within or immediately adjacent to the downtown area (refer to Figure 2). Staff is, therefore, working in coordination to maintain internal consistency within various City policies, project efficiency, coordinated outreach, and effectiveness in achieving the City's overall goals and vision for the downtown.

Figure 3: City-Led Projects in Downtown Area

There are two Planning processes occurring in parallel with the Downtown Precise Plan Comprehensive Update, both with the potential to inform and be informed by this project:

• The Moffett Boulevard Rezoning/Precise Plan is a separate effort for the Moffett Boulevard Change Area of the General Plan, north of the Transit Center. The City Council is tentatively scheduled to provide a direction on the scope of that project at their November 14, 2023 meeting. Staff intends to issue both requests for proposals at the same time, as there may be efficiencies identified by consultants in conducting both projects at the same time. However, staff notes that the Moffett Boulevard project will have to be completed by the Housing Element deadline of December 2025. The DTPP may take longer.

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• The Historic Preservation Ordinance and Register Update began in 2022 and will include:

— An update to the Ordinance, which will create new Citywide historic resource preservation processes and standards;

— An updated local Register of Historic Resources , which will identify and pro tect Citywide historic resources that meet criteria for significance and integrity;

— New criteria and procedures for a downtown Historic Preservation District based on historic and contributing buildings. The Historic Preservation Ordinance and Register Update can inform anticipated g rowth and preservation areas, transition standards, and other development policies related to historic preservation in the DTPP. A Study Session regarding this project is tentatively scheduled for December 12, 2023; and

— While the Historic Preservation District will be focused on buildings that are identified as historic and “contributing buildings” that support the character, the DTPP will focus on the character and design of buildings which are not identified as historic or contributing buildings. The goal is to ensure that all buildings support the character and aesthetics of the district.

PROJECT TIMELINE

The estimated project timeline for the plan update spans across 28 months, commencing the end of 2023 and with final adoption hearings in 2026. This timeline allows for comprehensive planning thorough community engagement and careful consideration of various aspects of the update. An outline of the timeline is provided in Table 3.

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Table 3: Project Timeline
Item Task/ Topic Tentative Schedule
Initial Outreach Informal kick-off outreach to
few key stakeholders for initial
input on vital themes for
Scope of Work preparation

September–October 2023
CC Study Session—This
meeting
Scope of Work Direction November 2023
RFP and Consultant
Selection
Q1 2024
CC Authorization Scope of Work Approval and
Consultant Agreement
Q1 2024
Existing Conditions Report
and Outreach
Data collection to prepare
existing conditions repot and
begin formal outreach on key
topics
Q2-Q3 2024
EPC and CC Study Sessions Discuss draft alternatives Q3 2024 EPC and CC Study Sessions Discuss preferred alternatives Q1 2025 CEQA Kickoff/
Draft Precise Plan
Preparation
Begin EIR Preparation,
Outreach on key topics, and
Precise Plan preparation.

Q2 2025-Q2 2026
EPC and CC Public Hearing Precise Plan Adoption Q3 2026

RECOMMENDATION

Provide direction on:

Question 1: Does Council agree with or wish to revise either of the following:

a. Scope of Work in Table 1; or
b. Precise Plan boundary?

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Question 2:

a. Does Council have feedback regarding the proposed outreach approach?

b. Is Council interested in an advisory working group for this project? If so, does Council have feedback on the composition of the group?

If Council is interested in this approach, staff will bring back options for an advisory working group based on Council feedback.

Question 3: Does Council support:

a. Removal or delay of the temporary office cap item in the Council work plan?

b. Or, alternatively, does Council wish to move forward with the temporary office cap item as a priority item in the current Council work plan and schedule the item for discussion at a future Study Session?

NEXT STEPS

Following tonight’s City Council direction on key scope of work topics, staff will proceed with consultant selection for preparation of the Precise Plan Update through the City’s Request for Proposals process and return to Council with the scope of work, consultant agreement, and other information as directed in Q2 2024.

PUBLIC NOTICING

The Council agenda is advertised on Channel 26, and the agenda and this Council report appear on the City’s website. All interested stakeholders were notified of this mee ting, including the nearby neighborhood association (Old Mountain View Neighborhood Association). Meeting information was also posted on the City’s project website: https://mountainview.gov/ dtppcomprehensiveupdate.

DP-EA-AS/4/CAM
807-11-07-23SS
203289

Attachments: 1. Downtown Precise Plan—P(19)

2. Council Priority Work Plan, Fiscal Year 2023-25

3. Summary of Pre-project Outreach Meetings

← All documents from this meeting