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HomeMy WebLinkAbout12/10/1969308 12-10-69 640 -i4. City Hall Palo Alto, California December 10, 1969 The Planning Commissions of the Town of Los Altos Hills and the City of Palo Alto met in special joint session on this date at 7:45 P.M. Members of the Palo Alto Planning Commission Present: John E. Austin William Bloom Frances Brenner Jack Giosso Absent: Mrs. Mary Gordon Willard Smith, Jr. Walter Stromquist Members of the Los Altos Hills Planning Commission Present: William A. Perkins Mrs. Priscilla Weisbart Don T. Hibner Laurence Dawson Arthur H. Lachenbruch Wilton F. Minckley Thomas T. McReynolds Members of the Palo Alto Planning Staff Present: Louis J. Fourcroy, Director of Planning & Community Development Charles A. Boyd, Director of Planning Peter Stone, Senior Assistant City Attorney Members of the Los Altos Hills Staff present: Murl M. Fritschle, Town Manager Dennis R. Lahr, City Clerk -Treasurer George Mader, Town Planner and Consultant Alexander Russell of the Charles S. McCandless Engineering firm repre- senting Los Altos Hills Mrs. Camille Savfano, Chairman of the Pathway Committee Also Present: Mrs. Mary C. Davey, Los Altos Hills Councilman Walter A. Benson, Los Altos Hills Councilman Citizens and the Press fr Chairman Giosso introduced Chairman Perkins of Los Altos Hills and briefly reviewed events leading to their first meeting -- an informal study session -- to discuss the following agenda: A. Arastradero Road design from Hillview to Road B. B. Traffic flow between Freeway 280 -Page Mill in- terchange and Palo Alto -Los Altos Hills. C. Traffic flow to and from the entire Foothills area in both Palo Alto and Los Altos Hills. 309 12-10-69 Chairman Giosso quoted the revised working goals of the Palo Alto General Plan as follows: "The major Goal of Palo Alto's General Plan is and should continue to be the development of a physical pattern de- sign to serve the social and economic requirements of the City, creating an efficient, satisfying and productive environment in which its residents may enjoy life, have 'diversified employment, culural, religious and recreational opportunities, and continue to realize the benefits of a broad range of high-quality municipal services at rea- sonable cost. D. Methods to control motorcycle, jeep, and similar traffic across the open land between Old Trace and Altadena, the new road to Old Trace from Arastradero having created a substantial traffic 4 increase. Chairman Perkins expressed their anticipation and appreciation for this and future joint meetings. He accepted the invitation to re- view planning principles and philosophies basic to the development of both communities. He recalled the mid -50's when the population of Los Altos Hills of 2,500 lived in 700 dwelling units on its 5,400 acres; when agriculture was still a viable industry and when there was still a number of large land holdings. He said it had been the feeling of the founder$ that low density and rural living should be preserved and they set about to establish a financial and govern- mental climate suitable to these pursuits. He said that today the area is still 5,400 acres, two horses are still allowed on each re- sidential one acre site, the tax rate is still 25C, and the roads are still minimal, windy and twisty; but he noted that people now number 6,7000 in 1,850 dwelling units and will probably climb up- wards to 11,000-12,000 in 3,000 dwelling units in the very near foreseeable future. He noted that agriculture, for all practical purposes, is no longer there, but said that rural living, no doubt a state of mind, is very dominant in terms of their way of life and the central issue in terms of their planning processes. He said they are at a crossroads in the face of population pressures around them, as to how best to handle future development -whether to use their original "hands-off" approach or to carry out necessary programs and enact legislation to assure continuance of their way of life. He said their General Plan, prepared in 1959, is out-of-date and totally inadequate for planning purposes. He acknowledged that problems do exist and believed that some of these problem can be solved in the interests of both communities especially if approached in a mutual and objective fashion based on attempts to understand the rationale behind decisions and proposals. Chairman Giosso quoted the revised working goals of the Palo Alto General Plan as follows: "The major Goal of Palo Alto's General Plan is and should continue to be the development of a physical pattern de- sign to serve the social and economic requirements of the City, creating an efficient, satisfying and productive environment in which its residents may enjoy life, have 'diversified employment, culural, religious and recreational opportunities, and continue to realize the benefits of a broad range of high-quality municipal services at rea- sonable cost. it 310 12-10-69 Recognizing this as a general Goal, the following specific Goals are considered as essential components of Palo Alto's General Plan to guide future growth and change: 1) To establish and maintain standards that will guarantee high quality in all residential, commercial, industrial, and other types of development within the City. 2) To encourage a physical environment which will attract a broad spectrum of people of various interests, races, religious, occupa- tions, and ages to reside in Palo Alto in order to provide a fullness of social interrelationships. 3) To maintain Palo Alto's character as a fine re- sidential community, while maintaining the essential ratio of residential, commercial, pro- fessional and industrial areas and activities in order that outstanding schools, cultural facilities and required municipal services are available at a reasonable cost to the residents. 4) To encourage, in proper balance to the economic and social requirements of the people of Palo Alto, the development of a variety of residential choices. - 5) To maintain Palo Alto's carefully developed re- strictive standards for light industrial develop- ment and to encourage selected and diversified ,quality industry in the City. 6) To maintain and enhance Palo Alto's position as the trading, financial, medical, professional services, scientific research and light industrial center of the mid -peninsula to,preserve the community's economic viability. 7) To continue the acquisition, development, and main- tenance of Palo Alto's parks, open space, recrea- tional facilities, and areas of special environmental value. 8) To emphasize and support local and regional planning for the efficient and expeditious movement of people, goods, and services, concentrating upon programs to protect and enhance the environmental qualities of residential areas. 9) To expand City boundaries through annexation only when the territory gained supplements and complements existing and planned City developments. L He added the following operational policies which should be followed 4/ to carry on an effective planning process in Palo Alto: First, coordination should continually be sought with other local governments, agencies and institutions planning for the physical de- velopment of the sub -region. This coordination would seek a broader geographic base for solving planning problems, while at the same time achieving a mutual understanding of problems and positions. ra u 311 12-10-69 Secondly, Palo Alto's relationship with Stanford University, which is at once geographic, cultural, and economic, should be appreciated and creatively nurtured so that the people of Palo Alto may continue to enjoy the maximum benefit emanating from this great institution. Thirdly, Palo Alto's role and responsibility should be recognized in planning the development of the Metropolitan San Francisco Bay area by supporting comprehensive regional planning, particularly includ- ing transportation, solid waste disposal, water quality control, bay conservation and development, air pollution control, regional open space and parks, and metropolitan airport planning." He said that Los Altos Hills' hope to retain rural planning is to be respected but that it seems obvious that Palo Alto is not headed in that direction. He believed that meetings of this type could solve many of the problems brought about by their different philosophies. He noted that the Commissioners are not empowered to act but to function as an advisory body and recommend planning solutions. To a question raised by Commissioner Brenner regarding Los Altos Hills' (CORRECTED 250 tax rate, Commissioner Hibner responded that this is a small part 1-28-70) of their total tax rate. Chairman Giosso referred to the agenda and the manner in which it should be discussed. After agreeing as to how to discuss the agenda before them, Commissioner Weisbart referred to the displayed plans of the Page Mill Road intersec- tion. The Director of Planning and Community Development recalled that the matter of Arastradero Road had been brought to the attention of the City Council by the City Manager, the recommendation being that Palo Alto get together with Los Altos Hills in order to work out a design that would result in the best possible road to handle anticipated traf- fic. He noted that the simplest thing would have been for Palo Alto to go ahead and put the road in the area as originally planned without interjurisdiction involvement. He explained that Stanford property development was the energizing factor leading to discussions of the need to develop Arastradero Road sections in the not too distant future. He discussed the dedications and commitments involved and particularly the delay up to 5 years to which Stanford had agreed. He said there is work ahead in trying to evolve a good design which will take a bit of time and guessed that improvements would be needed before 5 years. He said his personal bias (without official status at this point in time) would be to see that as long as a road is needed in the area it is developed to include a landscaped center divider. He said that design was one of the major decisions before them. He referred to displayed drawings showing the existing and potential cross sections of various portions of Areetradero Road as well as the possibility of dividing the road and showing the various rights-of-way presently existing. He expressed his hope that they could work together to achieve a high quality facility beneficial to all rather than being forced to put in a road of another type as would probably be necessi- tated without cooperation from Los Altos Hills. He referred to the interest and mutual progress being made on the paths system as another aspect of the developmcnt of this facility. Be suggested initial dis- 4 312 12-10-69 cussion might start with an exploratiori3of the appropriateness and logic of providing a trail system with biking and hiking on Palo Alto's side and a horse path on the Los Altos Hills side. In reply to Chairman Perkins' question as to whether he was suggest- ing that a 90 foot right-of-way was the most appropriate to obtain the type of access and median strip, the Director of Planning and Community Development said that there was no recommendation for a 90 foot right-of-way but that Palo Alto is faced with the necessity of thinking in terms of a four -lane facility, with or without the center divider, with or without parking, with or without curbs and paths, etc., and that it is a matter of mutual determination to see what can be done. He said the existing rights-of-way are a'kind of odd config- uration varying, from 90 to 65 feet resulting from a variety of dedi- cations: that in some cases there have been dedications of 10 feet with a reserve for acquisition of additional rights-of-way adding up to an eventual 90 foot and in other cases the subdivision maps indicate there is a 90 foot dedicated right-of-way. He pointed out that on the Palo Alto side there is 45 feet of right-of-way measured from the center line for the entire distance between Hillview td the City limits as a result of Stanfords dedication. He discussed the varying widths of rights-of-way on the Los Altos Hills side of the center line, actions regarding minumum development in the Old Trace Road area, access that will be required to Syntex, and the general need for additional deve- lopment of the roadway to accommodate the increased need as it develops. Mr. Mader described the variety of situations and variations in their rights of way, road widths and takings that would be required on the Los Altos Hills side. Commissioner Minckley said he took exception to requiring 90 feet once past Deer Creek Road, He said that this was probably one of the big reasons they were here and he wanted that statement to be kept in mind. Chairman Perkins said it seemed conceivable in some instances that the taking would result in substandard lots. Hepointed to difficulties presented in those homes located close to the roadway. He asked whether it would be possible that the additional required could come off the Stanford side. The Director of Planning and Community Development said he did not want to state whether it would or could but that it is a possibility for exploration. He said that their task is to attempt to determine what would be desirable and that the means of achieving it has been delegated to the Planning and Policy Committee of the Council. Chairman Giosso hoped they could look at it more from a policy viewpoint than land availability and other technicalities and with a goal bf jointly deciding on the desirable design of the development in generalities even to the extreme of considering say a 100 foot right-of-way with 20 feet of landscaping to protect Los Altos Hills. He referred to forecasts in the Foothills Environmental Design Study report and the DeLeuw Cather Trans- portation Study that a four -lane facility would be needed here even if developed at the low density of one dwelling unit per acre. Commissioner Dawson asked how these reports were justified in discussing roads in planning areas outside of Palo Alto's jurisdiction. The Director of Planning and Community Development explained that it was impossible to plan in a vacuum when one is part of a larger area; that one cannot stop planning at the City limits. re . A 312a 12-10-69 Commissioner Hinckley said their General Plan committee had discussed several alternative route to divert traffic from Arastradero Road. He noted, for example, that Deer Creek Road (B) travels through the area, covers the same ground and absorbs traffic from the same area. He suggested that perhaps this route should be explored; that perhaps with some adjustment to the geometries, Deer Creek Road could become the major traffic carrier and Arastradero could then be left as a country lane. He said it seemed somewhat illogical to assume a 90 -foot wide roadway when there is an apparent constraint at the underpass which would not allow joint accommodation of cars, horses, bicycles and pedestrials. He pointed out that on the west side of the freeway there is a little two lane road going down the side of the precipice and said that a cut to make the road wider would be prohibitive and scar up the countryside. He said they have to contend with the Freeway and that they do not want it any bigger. He believed that consideration of Deer Creek Road (B) as a major arm of a realigned Arastradero Road presented a potential solution for Los Altos Hills. 4 Commissioner Brenner said this appeared to be a fascinating concept. She sympathized with Los Altos Hills. She also noted that improvements to Arastradero Road would pose other traffic problems on the residen- tial segment of Arastradero Road in Palo Alto. She referred to prob- lems that Stanford lands and unincorporated areas would present. She noted that the land is now vacant and that understanding would be neces- s.aryas to possible development density there. She added the thought that Deer Creek Road (B) might be the main branch of Arastradero and the Fremont stretch of Arastradero be somewhat widened. She also ques- tioned whether it is physically possible that the other section of it be on the other side of the creek to preserve Deer Gulch Creek between -- the two and retain its parklike contribution to the area. She located on the map areas that would be difficult to widen and undeveloped areas that would certainly be subject to some kind of development eventually. She pointed out that the resultant overflow would put terrible pressure on a portion of Charleston. She said she was not familiar enough with some of the terrain of the area to know whether the 90 feet would be feasible nor did she know whether traffic going in one direction on either side of Deer Gulch would be approaching the underpass at 90 feet or 78 feet at that point. Commissioner Hinckley said they had given this some thought also. He noted this would not relieve the bottleneck under the freeway and on the other side unless one of the one-way roads is curved back to the freeway. He noted that the road on the opposite side is very steep and narrow. Mr. Mader confirmed that this cross section of Arastradero just east of Page Mill is the tighl*st section and the cut was steep. Commissioner Dawson pointed out that at one place they had attempted to get the Highway Commission to allow them to move the fence partway down the bank so that the flat spot could be used for trails and that this had been unsympathetically received. In reply to Chairman Glosse's question, they Director of Planning and Com- munity Development replied that there were difficulties --one of them possibly being that the Highway Commission is more susceptible to autos 4L than horses. He said solutions are possible, however, given the technology W and man hours. He stressed the need to return to the policy question of general design. He granted that some of the problems were tough one being the stretch generally from the Palo Alto City limits to the underpass and along the Creek requiring more detailed design and sensitive treatment to result in A non -hazardous road situation. 6W 312b 12-10-69 r Commissioner Hinckley wondered how they could make recommendations with- out some discourse with Stanford and the Highway people. He said that regardless of the study and improvement the bottleneck will occur at the interchange of Page Mill and Junipero Serra, and he could envision them backed up to the Bayshore. d Commissioner Dawson referred to additional problems in bringing four lanes of traffic down Arastradero to the interchange and discussed the characteristics of the right and left turns on and off the freeway. He noted that traffic generating from the highlands and Land Resources Corporation development would also contribute to the traffic jam and it would become a "whiz bang" intersection. The Director of Planning and Community Development acknowledged that additional traffic will create additional problems and said that it is a truism that there will be more congestion in nne lane at an intersection. He noted they have the ability to change the interchange design. He said these problems have been recognized and considered for some time. Mr. Mader said the interchange could not be ignored and that various alternatives. He described the lack of certain efficiencies in turning movements. In reply to Commissioner Weisbart's question, the Director of Planning and Community Development said the "J" road shown on the General Plan map is severely limited in the possibility of achieving it and that this problem needs to be faced in the future. He replied to the question of possible study of the interchange that he must have a preliminary type of policy decision to back up such a recommendation to the City Manager. Commissioner Dawson said he Understood that Palo Alto has no intention of ever broaching Foothills Park with through transportation. He noted the park bisects Palo Alto's lands so the halves cannot be connected within Palo Alto's own jurisdictions. He said it seems that Palo Alto is avoid- ing the fact that they are requiring Los Altos Hills or Portals, Valley to provide them with transportation between those halves and that this Is an area which concerns both jurisdictions. In reply to Chairman Giosso's question on that subject, the Director of Planning and Community Development said Palo Alto has no plans to put a road through Foothills Park. 4 Commissioner Brenner said it seemed they must attempt to work on the one recurring worry of how to handle the traffic in the area to serve people who (CORRECTED work in live in Los Altos Hills and Palo Alto and who all seem to have to 1-28-70) get some place else. She wondered if serous thought had been given to transporting people in tunnels and whether in their wildest dreams any thought had been given to a freeway tunnel to Bayshore the entire length of Arastradero. She said the area was large and vulnerable and she could see traffic of say 30,000 going home to Los Altos and other places in the hills with those 6,000 going off into that rural road in Los Altos Hills. She thought it was a tragedy that they could not all think of this route in relationship to the freeway --from 280 to Bayshore--and recognize that while It poses a threat to Los Altos Hills it is an even greater threat to Palo Alto; that the problem is much larger than this little stretch under discus- sion and needs a wider discussion than simply going to 3 or 4 lanes. Mr. Hinckley said they felt all kinds of sympathy. He spoke of the 90 to 110 feet of paved asphalt on Oregon Page Mill and said it was still not doing the job. r 312c 12-10-69 Commissioner Bloom hoped to establish a common denominator for dis- cussion purposes and asked whether Los Altos Hills would accept as valid model the 20,000 -car estimate based on the General Plan and DeLeuw Cather report. Mr. Hinckley replied that it would be difficult to answer in that he ,did not know that much about the report. He said he presumed the conditions set up were appropriate. Mr. Mader said they had briefly reviewed the DeLeuw Cather report but had not had been apprised of the technical data. He recalled that most figures seem to be generally appropriate. He added that they had questions regarding certain assumptions bearing on the area under discussion and would appreciate the opportunity for further review before they would say they accept the figures. Commissioner Bloom said they should be given the opportunity to look at the study and, if necessary, spend some time with the Palo Alto Planning staff. He felt it necessary that they basically agree on the forecasted traffic figures; that if they arrive at figures drastically different from the 20,000, it should be re-examined, but, in if in agreement, various alternatives should be explored. Commissioner Weisbart asked whether it was planned to construct a frontage road along LaCresta, Mandold and the Pearson area to keep traffic out and serve residents. She urged that everything possible be done to help the residents in that area who are already having problem and would find a four lane road on their doorsteps. Commissioner Lachenbruch referred to alternatives and noted that two alternatives to accommodate this traffic had been posed --one to widen Arastradero to four lanes to Page Mill and the second to use Deer Creek Road as Arastradero. He wondered if they should discuss the feasibilities and possibilities of the latter. Chairman Giosso agreed to explore these possibilities from a general Policy standpoint. that a study be taken; that )n worth considering. xnections and that he had fight be other solutions to e traffic study program model ffic would go to Page Mill Road, fic, etc. ment said It would not be that Deer Creek Road is de - that Road and that drastic up - He said however he did not •tudy of the figure, and the about as serious one way as the -roblems. .00m's earlier conclusion that I at a first step,loose agree- s to need better ,,case and rives from there. LM 312d 12-10-69 MOTION: During discussion, Commissioner Austinimoved that (1) in view of the fact that the future development of the Los Altos Hills and Palo Alto areas will generate additional traffic that appropriate solutions be found which would be most beneficial to both jurisdictions; (2) that the Palo Alto staff study the two solutions discussed this evening --one being the improvement of Arastradero Road, preferably to four lanes, and the other being the rerouting of Arastradero to Deer Creek Road (B) and over to Page Mfll--aad a'combination of improving the existing Arastradero Road by having one good lane on either side of Deer Creek Road to Highway 280 or rerouting Arestradero to another road in another place no one has ever thought about or any other idea that the Planning staff might come up with (and he clarified that the study should not be in depth); and (3) that the staff return with re- commendations for review by the joint Planning Commissions. MOTION SECONDED: Commissioner Minckley seconded the motion. Commissioner Austin said it was not his intent that the staff do an in-depth or engineering study. He advised the Director of Planning and Community Development that at this point in time they would like to have a relatively simple summary type study which might point the way to the need for further study. In reply to Chairman Perkins' question about whether the study would show potential development of the interchange to cope with the anti- cipated traffic load, the Director of Planning and Community Develop- ment said he proposed to communicate with the Highway Commission and the County and would incorporate their answers in the report. He des- cribed the types of information he envisioned the report would include. Ile noted that if further in-depth study was required they should begin to consider financing a joint study. During discussion as to a future meeting date, he believed that the date should be left flexible to allow for unforeseen events and added that early March looked all right at this time. He replied that he would be happy to get together with Mr. Mader before the meeting to familiarize them with the staff study. He agreed that a full copy of the DeLeuw Cather and Livingston 6-Blayney reports would be made available to Los Altos Hills for cir- culation as well as a supply of excerpts on items pertinent to Los Altos Hills. MOTION CARRIED: The motion carried unanimously. Chairman Perkins described vehicular traffic improperly entering the area widely used by people on horseback and bicycles above Old Trace Road and Arastradero Road. He noted there were no signs nor barri- cades prohibiting traffic and that residents of the area had called the police on occasion because of motorcycles, jeeps, etc., traversing the area. He raised the question, which has been asked by their com- munity, of a method of controlling this traffic to permit the eques- trian pathway link to exist safely. The Senior Assistant City Attorney said that Esther Clark Park is dedicated area and, as such, it is unlawful to operate motor vehicles. within its boundaries. He said that they had not found it necessary to post our parks. The Director of Planning and Community Development suggested that their Town Manager contact the City Manager of Palo Alto for a quick solution to the problem. In regard to Commissioner Weisbart's question as to whether Palo Alto has plane for a path in the general area of the Fremont Hills School, Commissioner Brenner noted that Commissioner Gordon was coordinator of trials and paths and she advised holding discussion of that sub- ject until a time when she is present. Chairman Giosso said that if no further issues were!to be raised that evening they would adjourn. He thanked the Town of Los Altos Hills Planning Commissioners for joining them in what he thought were very fruitful discussions. He said that no matter how small the first step is, it is the first step. He suggested that the Chairmen get together before the next meeting to formulate an agenda. He asked about the possibility of future public participation. Chairman Perkins said he looked forward to meeting to plan their next agenda and to matching ideas at their next study session. The meeting adjourned at 10:55 P.M. ATTEST cretary _41W APPROVED Chairman 312e 12-10-69