Chapter 3 Project Description 3.1 OVERVIEW This Draft EIR evaluates the potential for impacts to the environment for two separate but linked proposed projects: the San Mateo Rail Corridor Transit-Oriented Development Plan (Corridor Plan) and the Bay Meadows Specific Plan Amendment. The Corridor Plan, as proposed by the City of San Mateo, is broadly intended to create a new, more compact infill development pattern oriented around the Hayward Park and Hillsdale Caltrain stations located in the project area. The Corridor Plan includes four general categories of policies that would be added to the San Mateo General Plan (General Plan): land use and zoning, community character and design, transportation and circulation, and plan implementation. The second project analyzed in this EIR is the Bay Meadows Specific Plan Amendment (Bay Meadows project), which would modify the Bay Meadows Specific Plan (originally adopted April, 1997) to provide for redevelopment of the Bay Meadows Racetrack facility. The Bay Meadows project site is located within the Corridor Plan project area and therefore is also addressed in the analysis provided for the Corridor Plan. The sponsor of the Bay Meadows project is the Bay Meadows Land Company (BMLC), a private developer and current owner of the Bay Meadows Racetrack and related adjacent property. 3.2 PROJECT LOCATION The City of San Mateo is part of the mid-peninsula region of the San Francisco Bay area (see Figure 3-1), located approximately 20 miles south of San Francisco and 30 miles north of San Jose. The study area of the Corridor Plan (hereafter project area or Corridor Plan Area ) lies near the crossroads of Highways 101 and SR 92, roughly two miles south of downtown San Mateo (see Figure 3-2 for a map of the Corridor Plan Area and Figure 3-3 for an aerial photograph of a portion of the Corridor Plan Area). The Corridor Plan Area generally includes the non-residential lands located between El Camino Real and Highway 101, and between 16th Avenue and the San Mateo/Belmont border, within about one-half mile of the Hayward Park and Hillsdale Caltrain stations. The Corridor Plan Area encompasses roughly two and one-half miles from north to south and ranges from 250 feet to a little more than one mile from east to west, a total of 607 acres of land (nearly one square mile). The Bay Meadows project site is located in the eastern portion of the Corridor Plan Area, immediately east of the Caltrain tracks, south of the San Mateo County Exposition Center (Expo), west of the Franklin Resources office campus, and two blocks north of Hillsdale Boulevard (see Figures 3-2 and 3-3). The Bay Meadows Specific Plan area encompasses the existing Bay Meadows Racetrack, grandstand, and associated surface parking (together the Main Track ) and the Bay Meadows Specific Plan Phase I area (consisting of the Franklin Resources office campus, Gateway commercial uses, mixed-use area, residential area, and Linear and East/West Parks). San Mateo Corridor Plan and Bay Meadows Specific Plan Amendment EIR 3-1 EDAW, Inc.
Source: EDAW, Inc. 2003 Corridor Plan Study Area Bay Meadows Project Site San Mateo Corridor Plan and Bay Meadows Specific Plan Amendment EIR 3-3 N 0 400 800 1200 feet FIGURE 3-2 Corridor Plan Area and Bay Meadows Project Site February 2004
Source: EDAW, Inc. Bay Meadows Project Site Boundary Corridor Plan Boundary N 0 200 400 800 feet FIGURE 3-3 Aerial View of Corridor Plan Area (Partial) and Bay Meadows Project Site San Mateo Corridor Plan and Bay Meadows Specific Plan Amendment EIR 3-4 February 2004
The proposed Bay Meadows project studied in this EIR involves only the 83.5-acre site occupied by the Main Track and a portion of the San Mateo Expo (see Figure 3-4 for Specific Plan Area, Phases I and II). 1 Phase I of the Bay Meadows Specific Plan was the subject of its own EIR certified in 1997, and therefore is not evaluated in this document. 3.3 PROJECT CHARACTERISTICS The Corridor Plan and the Bay Meadows project are each described below separately. Corridor Plan The Corridor Plan is a policy document that provides a framework for the long-term development (2004-2020) of the Corridor Plan Area. 2 The Plan identifies goals and objectives intended to facilitate Transit- Oriented Development (TOD) in the Corridor Plan Area that would create an integrated pattern of land use, urban design, and circulation that is compact, pedestrian-friendly, and promotes reliance on forms of transportation other than the automobile. Based on eight fundamental goals developed by the Citizen Advisory Committee (CAC) created to oversee development of the Corridor Plan, 23 objectives were established in the Corridor Plan, touching on four major topic areas: Improving and Creating Multi-modal Streets; Focusing TOD at Station Areas; Encouraging Transit-Supportive Land Uses; and Ensuring Compatibility with Existing Development. (Refer to Chapter 3 of the Corridor Plan for a complete list of the objectives.) 3 The eight goals developed by the CAC are as follows: 1. Encourage well-planned, compact development with a range of land uses, including housing, commercial, recreation and open space uses, in proximity to train stations. Compact development shall minimize the need for automobile use and encourage walking and the use of transit; 2. Improve pedestrian, bicycle, shuttle, and vehicular access by creating direct connections to the train stations and other transportation facilities and local destinations; 3. Identify needed transportation and public improvements including train station enhancements; 4. Create opportunities for land use change that are compatible with and add value to surrounding neighborhoods; 5. Enhance economic development opportunities consistent with the City s Economic Development Strategy; 6. Improve local traffic conditions in study area; 1 The Bay Meadows project site comprises Assessor s Parcel Numbers 040-030-091 and 040-030-029. 2 The Bay Meadows project site is included in the Corridor Plan Area. If the proposed Bay Meadows project, as described in this EIR, is adopted, the Bay Meadows Specific Plan Amendment would govern the Bay Meadows project site. The Bay Meadows Specific Plan Amendment has been guided by the goals and objectives of the Corridor Plan. 3 A copy of the Corridor Plan is available from the San Mateo Planning Division. San Mateo Corridor Plan and Bay Meadows Specific Plan Amendment EIR 3-5 EDAW, Inc.
Source: EDAW, Inc. Phase I 0 200 400 800 feet N San Mateo Corridor Plan and Bay Meadows Specific Plan Amendment EIR 3-6 Phase II, Specific Plan Amendment Area) (Bay Meadows Project Site studied in this EIR) Corridor Plan Boundary (Partial) FIGURE 3-4 Bay Meadows Specific Plan Area, Phases I and II February 2004
7. Protect and improve neighborhood quality of life; and 8. Create opportunities for land use change that are balanced with the circulation system. The goals and objectives of the Corridor Plan would be implemented through a series of policies that broadly address land use and zoning, transportation and circulation improvements, community character and design, and plan implementation. Each of the Plan s four general categories of policies is described below. A list of all 88 policies included in the Corridor Plan is provided in Appendix B. Land Use and Zoning Policies The centerpiece of the Corridor Plan s land use program is the proposed creation of two TOD zones that include transit supportive development densities, building heights, and design guidelines. The zones are intended to support the creation of transit-oriented villages centered around the Hayward Park and Hillsdale Caltrain stations. As recommended by the CAC, implementation of the TOD zones proposed in the Corridor Plan would require amendment of the General Plan and, in some cases, Measure H (a voterapproved limitation on building heights in the City). Ten of the Corridor Plan s 15 land use policies (Policies 5.1 and 5.4 through 5.12) are associated with the creation and structure of the TOD zones. Policy 5.2 provides for childcare facilities as permitted uses within TOD zones. Each zone is broken into three sub-zones for which different land use mixes, heights, and densities are identified. See Figure 3-5 for the location of the TOD zones and sub-zones. The TOD zones are intended to encourage transit supportive land uses and development densities, a pedestrian friendly environment, convenient and attractive access to transit, high quality public and private development, and memorable and inviting public open spaces. Within each TOD zone, these goals would be implemented through policies that include the following: development of commercial and multi-family residential uses at transit supportive densities; the provision of publicly accessible open space; the provision of multi-modal transit facilities; and the provision of retail uses that serve commuters and neighborhood residents. One land use policy (Policy 5.3) specifically addresses maintaining and enhancing land uses within the Corridor Plan Area but outside the TOD zones. The remaining three policies lay out a plan for the Corridor Plan Area s height restrictions, including identification of specific height zones for both the Hillsdale Station and Hayward Park Station areas (Policies 5.13 through 5.15). With adoption of the Corridor Plan, the mix and intensity of development that could potentially occur within the Corridor Plan Area by 2020 would vary depending upon what maximum level of development is approved by the City s decision-makers as well as market forces and available public resources. As such, a range of development programs that could occur with implementation of the proposed Corridor Plan has been identified (with the lowest end of that range referred to herein as Scenario A or Corridor Plan A, and the highest end of the range Scenario Z or Corridor Plan Z). San Mateo Corridor Plan and Bay Meadows Specific Plan Amendment EIR 3-7 EDAW, Inc.
Source: EDAW, Inc. N 0 200 400 800 feet TOD Zone Boundaries Corridor Plan Boundary San Mateo Corridor Plan and Bay Meadows Specific Plan Amendment EIR 3-8 FIGURE 3-5 Corridor Plan TOD Zones February 2004
This EIR analyzes both scenarios for each environmental topic. See Table 3-1 for a comparison of the scenarios, broken down by uses within the Hayward Park Area, the El Camino Real corridor, and the Bay Meadows property (roughly equivalent to the Bay Meadows Specific Plan Amendment project site). Table 3-1 Corridor Plan Land Use Development Scenarios CORRIDOR SUBAREA SCENARIO A SCENARIO Z HAYWARD PARK AREA New Housing 636 units 1,725 units maximum density in subarea (units/acre): (< 25 u/a) (< 75 u/a) New Offices 412,100 s.f. 762,100 s.f. New Retail 50,000 s.f. 150,000 s.f. Total new commercial (office & retail, independent of uses to be replaced) 1 462,100 s.f. 912,100 s.f. BAY MEADOWS PHASE II AREA New Housing 600 units 1,900 units maximum density in subarea (units/acre): (< 25 u/a) (density TBD) New Offices 900,000 s.f. 2,777,000 s.f. New Retail 50,000 s.f. 200,000 s.f. Total new commercial (office & retail, independent of uses to be replaced) 1 950,000 s.f. 2,977,000 s.f. EL CAMINO REAL CORRIDOR New Housing 406 units 406 units maximum density in subarea (units/acre): (25-50 u/a) (25-50 u/a) New Offices 254,848 s.f. 254,848 s.f. New Retail 355,831 s.f. 355,831 s.f. Total new commercial (office & retail, independent of uses to be replaced) 1 610,679 s.f. 610,679 s.f. CORRIDOR TOTAL New Housing 1,642 units 4,031 units New Offices 1,566,948 s.f. 3,793,948 s.f. New Retail 455,831 s.f. 705,831 s.f. Total new commercial (office & retail, independent of uses to be replaced) 1 2,022,779 s.f. 4,499,779 s.f. 1 Existing uses in the Corridor Plan Area that could be replaced include commercial, industrial, racetrack, and other noncommercial uses. This figure does not include uses to be replaced because it is unknown precisely which uses would be replaced and because not all of those that would be replaced are directly comparable with the commercial uses that would replace them. Within the Hayward Park subarea, as much as 515,000 s.f. and 735,000 s.f. of existing uses could be replaced under Corridor Plan A and Corridor Plan Z, respectively. Within the El Camino Real subarea, as much as 275,000 s.f. of existing uses could be replaced under either scenario. The entirety of the uses to be replaced on the Bay Meadows site are racetrack uses (i.e., grandstand, barns, etc.), which do not have a direct commercial equivalent. Under Scenario A, 1,642 new residential units and approximately 2.02 million gross square feet (gsf) of new commercial space would be developed. 4 Under Scenario A, all development would occur within intensities currently prescribed by the General Plan (generally 55-foot heights, up to 50 units/acre densities). Under Scenario Z, 4,031 new residential units and approximately 4.5 million gsf of new commercial space would be 4 The commercial space square footages are based on the assumption that a total of approximately 2.02 million gsf of commercial space would be developed and that 1.412 million gsf of that space would represent existing non-residential space (including the Bay Meadows racetrack facility) to be replaced. San Mateo Corridor Plan and Bay Meadows Specific Plan Amendment EIR 3-9 EDAW, Inc.
developed. 5 Under Scenario Z, development in some locations in the Corridor Plan Area would exceed the intensities currently prescribed and anticipated by the General Plan. Scenario A is roughly comparable to General Plan 2020, with the exception of development assumed for the Bay Meadows site. Community Character and Design Policies Recognizing that quality of the built environment is influenced by factors other than land uses and the height and density at which those uses are built, the Corridor Plan includes 32 policies that address the desired character of the public realm (public streets, transit stations, and publicly-owned land), important development opportunity areas (termed Core Areas), and design guidelines for the placement and appearance of buildings. The Corridor Plan s recommendations expressed in its policies are intended to define a minimum level of design quality and be used as a general reference for the preparation and review of development proposals within the Corridor Plan Area. The Corridor Plan includes nine policies (Policies 6.1 through 6.9) that address the public realm, including calling for an area-wide streetscape master plan, development of sidewalk design standards, and coordination to ensure quality design of the Hayward Park and Hillsdale Caltrain stations. The Core Areas discussion in the Corridor Plan identifies 18 policies (Policies 6.10 through 6.27) that provide fundamental recommendations for overall design guidance, for office and residential uses, mixed-use development, and parks and plazas. Five policies (Policies 6.28 through 6.32) provide design guidelines specifically for the TOD zones, but which are also intended for the rest of the Corridor Plan Area. These guidelines address transit station areas, block development patterns, neighborhood form-defining streetwalls, and building prototypes. Transportation and Circulation Improvements While some of the framework of streets in the Corridor Plan Area is already in place, a major objective of the Corridor Plan s policies is to provide for major improvements to the City s circulation system (i.e., completing the grid ), thereby providing more and enhanced travel options for vehicle traffic, bicycles, and pedestrians. These improvements would be implemented in a phased manner by 2020, with their timing triggered by corresponding levels of development. 6 The Corridor Plan s 16 policies addressing the circulation system fall into five general categories: improvement to major streets (including grade separations to enhance east/west connectivity), improvements to local streets, intersection improvements, pedestrian and bicycle access, transit station features, and related modifications to the circulation system. The issues addressed by these policies are summarized below by category. 5 The commercial space square footages are based on the assumption that a total of approximately 4.5 million gsf of commercial space would be developed and that 1.64 million gsf of that space would represent existing non-residential space (including the Bay Meadows racetrack facility) to be replaced. 6 For a discussion of the improvements planned by the Joint Powers Board associated with the Caltrain stations, tracks, and grade crossings that would occur over the same period, see Chapter 4.3. San Mateo Corridor Plan and Bay Meadows Specific Plan Amendment EIR 3-10 EDAW, Inc.
Improvements to Major Streets Policies 4.1-4.4, 4.8, and 4.11 address improvements to major streets, including both streetscape and circulation improvements, include the following: Delaware Street: Street width, parking configuration, and other streetscape improvements should be made for five distinct segments of the roadway. Pacific Boulevard: Extension of a two-lane section south of 31st Avenue to Delaware Street, elimination of the westbound ramp linking Pacific Boulevard to Hillsdale Boulevard, and streetscape improvements. Franklin Parkway: Extension westward to connect with the proposed extension of Delaware Street and/or 31st Avenue. 28th Avenue: Construction of a grade separation under the Caltrain tracks and an extension between El Camino Real and Saratoga Drive (two lanes between El Camino Real and Delaware Street, four lanes east of Delaware Street). 31st Avenue: Construction of a grade separation under the Caltrain tracks and an extension between El Camino Real and the Delaware Street extension. 25th Avenue: Street trees, sidewalks, and lighting should be carried through on the grade separated roadway to be constructed by the Joint Powers Board (JPB). 17th Avenue: Construction of a grade separation if Caltrans improvements are made to SR 92. Leslie Avenue: Streetscape improvements, including sidewalk widening and paving. Concar Drive: Pedestrian improvements at its intersection with Delaware Street and between Delaware Street and the Caltrain tracks. Streetscape and other roadway improvement concepts for El Camino Real are addressed separately in the El Camino Real Master Plan. The El Camino Real Master Plan was adopted by the City of San Mateo and was the subject of a separate environmental review. The El Camino Real improvements are therefore not analyzed as part of this EIR. Improvements to Local Streets Major areas of potential change in the Corridor Plan Area include the Hayward Park Station East Commercial District (Kmart area), the Civic Use District (Corporation Yard area), the Mid SR 92 Commercial District (the Concar Shopping Center), and Bay Meadows. In these areas, the Corridor Plan policies call for new development to provide local streets that improve access to individual buildings of the new developments (Policy 4.5). The exact location of these local streets would be at the discretion of individual developers, but the Corridor Plan includes criteria regarding block size and intersection alignment that should be achieved. Intersection Improvements The Corridor Plan includes two policies that address intersections. Policy 4.6 calls for the establishment of new intersections that are both efficient and safe, which would be accomplished through appropriate San Mateo Corridor Plan and Bay Meadows Specific Plan Amendment EIR 3-11 EDAW, Inc.
intersection design and placement. Policy 4.7 calls for the implementation of theme intersections, which would provide for special design treatment in areas of high pedestrian traffic, such as El Camino Real at 17 th and 28 th Avenues and Delaware Street at Saratoga and Concar Drives. Pedestrian and Bicycle Access Policies 4.9 and 4.10 describe specific recommendations for where non-automobile access facilities should be constructed and design criteria to ensure that these facilities are convenient and safe. Specific improvements that the policies recommend include: a pedestrian grade-separated crossing at 16th Avenue, a pedestrian connection from South Boulevard to 17th Avenue, pedestrian and bicycle trails near Hayward Park east of the Caltrain tracks, and a pedestrian connection to the Franklin Resources offices from the station area. Transit Station Features The Corridor Plan includes five policies (Policies 4.12 through 4.16) that call for a street system adjacent and connecting to the Hillsdale and Hayward Park Caltrain stations that is convenient, highly visible, inviting, respectful to its context, and that links it to the immediate neighborhood and broader community. Specific improvements that the policies recommend relate to: the location, configuration, and availability of parking; the form of pedestrian crossings; and street connections to facilitate vehicular and pedestrian access. Plan Implementation The Corridor Plan includes policies that address specific mechanisms for implementation of the plan, including necessary regulatory steps and phasing and financing. Two policies (Policies 7.1 and 7.2) address revisions to the General Plan supporting TOD and the creation of two TOD zones. Two policies (Policies 7.3 and 7.4) call for revision to the City s zoning code to address the new TOD zones and promote TOD principles within one-half mile of the TOD zones. Four additional policies (Policies 7.5 through 7.8) would ensure new development is consistent with the plan s objectives. Various mechanisms for financing the capital improvements recommended in the Corridor Plan are addressed in Policies 7.9 through 7.11. Five additional policies (Policies 7.12 through 7.16) identify specific responsibilities of developers within the Corridor Plan Area with regard to the payment of fees and construction and maintenance of street lighting. The implementation chapter also includes a framework for the Corridor Plan s proposed transportation demand management (TDM) program, the purpose of which is to ensure that all new development in the TOD zones is truly transit-oriented and minimizes automobile traffic impacts upon the rest of the City. In Policies 7.17 through 7.25, the TDM program includes: establishment of a corridor-wide trip reduction goal; establishment of a Transportation Management Association with membership requirements; requirement for single-occupant vehicle trip reduction goals for individual projects; definition of a range of TDM measures to achieve trip reduction goals; and requirements for ongoing monitoring to ensure compliance and the actions to be taken for non-compliance. San Mateo Corridor Plan and Bay Meadows Specific Plan Amendment EIR 3-12 EDAW, Inc.
A Technical Appendix to the Corridor Plan includes a detailed discussion of most of the TDM measures and how they could be implemented in the corridor. The measures that are explained in detail in the discussion include: parking permit and parking rate systems, transit subsidies, car sharing, carpool promotion, bicycle facilities, ride home programs, and alternative work schedules. Bay Meadows Specific Plan Amendment The proposed Bay Meadows project involves implementation of an amendment to the Bay Meadows Specific Plan to provide new planning criteria to facilitate redevelopment of the Main Track portion of the Specific Plan area, including a framework that would guide the location of land uses. 7 Rather than mandate a particular site plan or development, the Specific Plan Amendment sets limits on the nature and extent of the development that could occur on the site and mandates a road network, infrastructure improvements, public open space dedications, and design standards and guidelines for that development. Specific site plans would be subject to City approval as the project is built out over the requested 20-year entitlement period. For the purposes of this EIR, illustrative plans are provided as examples of the type of development that could occur based upon the limits set forth in the Specific Plan Amendment. 8 The proposed project includes changes in land use, circulation and parking, open space, off-site infrastructure, and other related issues. Each of these elements of the proposed project are described below. Land Uses and Development Zones The proposed project would eliminate existing Bay Meadows racetrack operations and could result in the complete redevelopment of the site with a minimum of 500,000 gsf of office space and 500 residential units and a maximum of 2.1 million gsf of office space, 1,500 residential units, and 100,000 gsf of retail space. The project also includes 29.5 acres of open space (of which 15.6 acres would be devoted to parks and public plazas). 9 The project-wide (aggregate) residential density would range from a minimum of 16 to a maximum of 50 dwelling units per net acre. 10 See Table 3-2 for a breakdown of uses and other project characteristics and Figure 3-6 for an illustrative site plan. Buildings would range from two to five stories and from 25-55 feet in height. 11 7 As adopted in 1997, the Bay Meadows Specific Plan proposes that the Main Track remain operational with racing uses. 8 The plans provided in this document represent the best understanding to date of what would be expected to be constructed if the proposed project were approved and implemented. However, these plans are solely meant as a representative example of what could be constructed, and will not be finalized until completion of the City s Site Plan and Architectural Review process. The amount and general nature of development that would occur as a result of the project would not exceed that studied here without potentially requiring additional environmental review. Therefore, unless otherwise noted, the analysis in this report would also apply to alternative site plan and building configurations. 9 For the purposes of analysis in this EIR, the maximum figures are assumed to be the proposed project. 10 Aggregate net density is calculated based on the Residential Parcel less public right-of-way, which is the amount of land devoted to residential uses. 11 The General Plan limits heights on the project site to 55 feet to the top of occupiable building space. Roof peaks and rooftop equipment enclosures can extend beyond that limit. San Mateo Corridor Plan and Bay Meadows Specific Plan Amendment EIR 3-13 EDAW, Inc.
Table 3-2 Bay Meadows Project Characteristics PROJECT COMPONENT Project Site Area Residential Units Residential Density Office Area Retail Area Open space Public open space Private open space Building Heights Source: Bay Meadows Land Company PROPOSED CHARACTERISTIC 83.5 acres 500-1,500 units 16-50 units/acre 500,000-2,100,000 gsf 0-100,000 gsf 29.5 acres 15.6 acres 13.9 acres 25-55 feet Since the project sponsor is seeking approval for the vested right to develop the property for a period of 20 years, the timeframe for complete build-out would be 2004-2024, with the precise date dependent largely upon market conditions, the time to complete future elements of the project design, and the date of project approvals. 12 As illustrated by Figure 3-7, the proposed project would be generally arranged into three zones: the Delaware Street/Mixed-Use, South Residential, and North Mixed-Use neighborhoods. 13 Rather than apply specific limitations on a block-by-block basis, the project would permit residential development in any of the three neighborhoods in the project area. The three zones are described as follows: Delaware Street/Mixed-Use Neighborhood: This 12.82-acre zone would be oriented around the new/relocated Caltrain station 14 and Delaware Street. This area would include mixed-use office and residential buildings with ground-floor retail spaces intended to serve local residents and workers. Pedestrian access to the 1,000-foot long train platform that will be located between 28th and 31st Avenues would be provided at each end, as well as at intermediate locations where conventional streets or pedestrian ways would provide direct access between Delaware Street and the station. A ceremonial station plaza would be located at the corner of 28th Avenue and Delaware Street. Diagonal parking and enhanced landscaping would be provided on Delaware Street to promote a main street character. As shown in the project s illustrative plan (Figure 3-6), this zone could contain approximately 640,000 gsf of office space, 212 residential units, and a total 67,600 gsf of retail space situated along the west side of Delaware Street. 12 While the project sponsor is seeking approval for the vested right to develop the property for 20 years, for the purposes of analysis in this EIR, it is assumed that the project would achieve complete build-out by 2014 because it is expected that build-out may actually occur within 10 years. 13 The approximately 13-acre public park, discussed further below, would be located in the South Residential Neighborhood. 14 As described in Section 1.2 of this document, the construction of the new Bay Meadows express station is planned to be implemented by the Joint Powers Board and is not part of the proposed project. San Mateo Corridor Plan and Bay Meadows Specific Plan Amendment EIR 3-14 EDAW, Inc.
Public Park Plaza Plaza Franklin Resources Corporate Center Plaza Source: Bay Meadows Land Company 2003 Note: Names provided for proposed streets have not been finalized. 0 100 200 400 feet San Mateo Corridor Plan and Bay Meadows Specific Plan Amendment EIR 3-15 Project Boundary FIGURE 3-6 Bay Meadows Specific Plan Amendment - Illustrative Site Plan February 2004
Public Park Predominantly Office Delaware/ Mixed-Use Main Street Neighborhood North Mixed-Use parcel South Residential Neighborhood Predominantly Residential Source: Bay Meadows Specific Plan Amendment - Phase II Overview Project Neighborhood Boundaries San Mateo Corridor Plan and Bay Meadows Specific Plan Amendment EIR 3-16 FIGURE 3-7 Bay Meadows Specific Plan Amendment - Proposed Development Zones February 2004
North Mixed-Use Neighborhood: This 22.86-acre zone would be generally bounded by 28 th Avenue to the north, Delaware Street to the west and 30 th Avenue to the south. This area would support a range of office uses. Buildings along Delaware Street would support a variety of uses on the ground floor and would be designed to have pedestrian-oriented treatments. This zone s street plan has been designed with the flexibility to allow for the creation of an office campus to suit a single office tenant. As shown in the project s illustrative plan, this zone as currently designed would contain a maximum of approximately 1,455,000 gsf of office space, 30 residential units, and 21,600 gsf of retail space. South Residential Neighborhood: This 34.95-acre zone, located south of the Delaware Street/Mixed-Use zone and north of what would be an extension of 30 th Avenue, 15 would be primarily dedicated to residential space in a range of housing types. This zone would include an approximately one-acre public park and numerous mid-block pedestrian walkways and passages to promote pedestrian movement between this area and the train station and adjacent commercial uses. A 13.5-acre open space would be located in the northeastern corner of this zone. As shown in the project s illustrative plan, this zone as currently designed would contain a maximum of approximately 5,000 gsf of office space, 1,258 residential units, and 10,800 gsf of retail space. Parking and Circulation The project proposes a new circulation system consisting of an inter-connected street network that would establish direct routes to local destinations and accommodate vehicular, pedestrian, bicycle and transit use and access (see Figure 3-8). 16 Implementation of the circulation system infrastructure would be phased with the component of the project that creates the need for the improvement. Street System The vehicular circulation to and within the project site would be organized by a hierarchical street system. The primary streets would connect the project site with the adjacent areas, while secondary streets would internally connect the three project zones. The project would provide multiple routes to diffuse traffic and primary pedestrian connections throughout the site. Smaller-scaled local streets would serve the individual project neighborhoods and provide additional links in the overall pedestrian network. (Cross-sections describing these varying street types are included in Appendix C.) 15 The Bay Meadows project as currently designed includes an east-west street that would approximately bisect the site and that would be aligned with the existing 30th Avenue that currently terminates at Flores Street just west of Hillsdale Shopping Center. Throughout this document, it is this proposed street that is being referred to when the term 30 th Avenue is used in reference to the Bay Meadows project site. 16 With the exception of the Franklin Parkway and the Delaware Street extension, the street names presented on the proposed street network may change; they are provided for reference purposes only and would ultimately be determined by the City. San Mateo Corridor Plan and Bay Meadows Specific Plan Amendment EIR 3-17 EDAW, Inc.
28TH AVENUE PARK DRIVE CALTRAIN TRACKS DELAWARE STREET 29TH AVENUE 30TH AVENUE BAY STREET FRANKLIN PARKWAY (not all shown) Source: Bay Meadows Specific Plan Amendment Framework Plan San Mateo Corridor Plan and Bay Meadows Specific Plan Amendment EIR 3-18 FIGURE 3-8 Bay Meadows Specific Plan Amendment - Proposed Street Network February 2004
The primary east-west connection in the northern portion of the site would be 28th Avenue, which would cross beneath the north-south Caltrain right-of-way 17 and connect El Camino Real to Saratoga Drive. The primary east-west connection in the southern portion of the site would be the extension of Franklin Parkway. Partially constructed in Phase I, Franklin Parkway would provide direct access to and from Highway 101 and would extend west from Saratoga Drive to link with Delaware Street and Pacific Boulevard. 18 The southerly extension of Delaware Street would be the primary north-south street through the site, connecting to Franklin Parkway to the south. The character of Delaware Street between 28th and 31 st Avenues, adjacent to the Caltrain station, would be pedestrian-oriented (e.g. two lanes wide, wide sidewalks, generous landscaping, onstreet parking, etc.). The three primary roadway segments would be constructed on a phased basis at such time as the impacts warrant. Phasing would be determined by the City no later than at the time of approval of the initial subdivision map. Secondary streets would include 29th, 30th, and 31st Avenues running east-west, and Bay Street and Park Drive running north-south. The secondary streets would be intended to primarily serve the Bay Meadows development and therefore reflect the characteristics and pedestrian scale of the particular neighborhood they would serve. An east-west connection between Saratoga Drive and Delaware Street would be provided by 29th Avenue, while 30th and 31st Avenues would connect Delaware Street to Park Drive. Park Drive would connect 28th Avenue to 31st Avenue, while Bay Street would run from 28th Avenue to Franklin Parkway, becoming a one-way loop around a park located north of 31st Avenue. Smaller scale local streets in the project s subareas would serve local traffic and provide pedestrian access. To allow flexibility in the layout of the larger development sites, these streets are not specifically identified in the Specific Plan Amendment, but their construction would have to adhere to the project s street design guidelines. Such streets could be either public or private. The proposed framework street system would not preclude a future grade-separated connection from El Camino Real to Delaware Street at 31st Avenue. Such a grade-separated crossing, which is recommended in the Corridor Plan, could be constructed when funding from sources other than the Bay Meadows project, such as other development in the Corridor Plan Area, becomes available. Until such a connection is created, 31st Avenue west of Delaware Street would serve as a local access to the parcels located along the Caltrain right-of-way and as a pedestrian access to the south end of the Caltrain platform. Parking Parking serving the project s office uses would be provided at a ratio of between 2.75 and 3.25 spaces per 1,000 square feet, depending upon transportation demand management measures and opportunities identified 17 The proposed Bay Meadows project includes construction of a grade-separation for 28 th Avenue. Any other grade separations, such as at 31 st Avenue, are not included as part of the Bay Meadows project. 18 The project would need to acquire land to extend Franklin Parkway to connect to Pacific Avenue. The project sponsor holds an option to purchase this land. San Mateo Corridor Plan and Bay Meadows Specific Plan Amendment EIR 3-19 EDAW, Inc.
for shared parking. For the project s proposed 2.1 million square feet of office space, this would result in between approximately 5,775 and 6,825 spaces. Some of these spaces would be on-street, some would be in below-grade parking garages, and the remainder would be in three- to five-story above-grade garages. At build-out, no more than approximately 3,000 additional spaces would be provided for residential uses (a ratio of 2 spaces per dwelling unit). Most of theses spaces would be in off-street garages, including one level below-grade where feasible. Parking for the retail area along Delaware Street would be provided through onstreet spaces, plus potential shared parking. In addition, a parking garage that is anticipated to accommodate 500 spaces on five levels would be constructed by the JPB for regional transit users. The site for the garage would be offered for sale or otherwise conveyed by the project sponsor, but construction of the garage by the JPB is not part of the proposed Bay Meadows project. Open Space The proposed project includes 15.6 acres of dedicated public parks and plazas. The principal open space would be an approximately 13-acre public park that would be located along the west side of Saratoga Drive in the northeast corner of the site that could accommodate a range of active and passive recreational activities (see Figure 3-6, above). A one-acre park would be located in the center of the South Residential neighborhood that could accommodate passive and children s recreational activities. In addition, three public plazas totaling 1.4 acres would be developed, one at each end of the Caltrain station along Delaware Street and one adjacent to the eastern side of the tracks at the middle of the station. Project Design and Infrastructure The proposed project would include an array of on- and off-site infrastructure improvements. Sanitary sewer needs would be served by a network of 8- to 18-inch diameter pipes that would connect to the adjacent City sewer system and a new pumping station to be constructed as part of the project. The exact location of the connection and new pumping station have not been determined. All existing on-site sewers, and any associated easements, would be abandoned. One possible connection point would be to the Norfolk Street system, which requires an additional pipeline undercrossing of Highway 101. This connection would likely require a pumping station and a force main routed via a combination of the following alternatives: Bay Meadows to Bermuda Avenue Reach Option 1a - From Bay Meadows north along Saratoga Drive to the 19th Avenue Channel, then east along the channel edge to Bermuda Avenue. This section would be located within Cityowned streets and the City-owned access path adjacent to the 19th Avenue Channel. Option 1b - From Bay Meadows north-east along Bermuda Avenue to the 19th Avenue Channel. The construction of this pipe would cause short-term disruption to the residents of Bermuda Avenue. This section would be located within City-owned streets. San Mateo Corridor Plan and Bay Meadows Specific Plan Amendment EIR 3-20 EDAW, Inc.
Bermuda Avenue to Norfolk Reach Option 2a - From Bermuda Avenue north-east across the City Park to Highway 101, under Highway 101 and onto Norfolk Street in the Caltrans right-of-way. This section would be located within the City-owned park and within the Caltrans right-of-way (from the Highway 101 under-crossing to the point of connection in Norfolk Street), thus requiring an easement to be granted to the City. Option 2b - From Bermuda Avenue east along the 19th Avenue Channel edge to Norfolk Street. A dense arrangement of utilities exists immediately to the east of the highway and alongside the southern edge of the channel, which may require some modifications to allow the routing of the Norfolk connection. This section would be located within the City-owned access path adjacent to the 19th Avenue Channel. At the Highway 101 under-crossing, the pipe would be located within the Caltrans right-of-way, thus requiring an easement to be granted to the City. At the dense utility node, it may be desirable to locate the pipe within the parking lot of an adjacent private property, which would also require an easement to be granted to the City. Stormwater would initially be managed on-site prior to discharging to the existing 42-inch Saratoga Drive storm drain, to which a new connection would be constructed. The existing stormwater connection between the Bay Meadows racetrack and the existing 42-inch line would be supplemented by an additional connection to the existing line. This additional connection would smooth the hydraulic grade line located on Saratoga Drive; thereby improving its performance. The existing outfall to the 19 th Avenue channel would continue to be used, but the existing drainage pond currently located in the infield of the Bay Meadows racetrack would be relocated. While the final location of the pond would be in the proposed 13-acre public park area where it would be a permanent water feature, there might be a need for constructing a temporary pond at an interim location on the site to accommodate a phased build-out. Also planned as part of the stormwater system is a short-duration floodable area to supplement the on-site detention for the 1-in-2-year design storms or greater. Athletic fields within the park would also serve this purpose for large-event floods, but for a duration no longer than 12 hours. Water service would be provided by constructing 8- to 15-inch diameter mains that would connect to the existing water systems on Saratoga Drive and Delaware Street. Connections would be made to existing offsite facilities to provide gas, electric, and telecommunication services to the site. San Mateo Exposition Center Land Exchange Under a 1951 Easement Agreement, the project sponsor s predecessor-in-interest (California Jockey Club) granted the County of San Mateo an easement over portions of the Bay Meadows Racetrack for parking purposes. In 1956, the County granted an easement to the California Jockey Club (then the owner of Bay Meadows) for vehicle parking purposes on part of the San Mateo Exposition Center (Expo) parking lot. These easements were terminated in 1997, but the County retained certain unrecorded parking rights to utilize Bay Meadows parking on an overflow basis so long as the track remains in use. Under the proposed project, these rights would be extinguished. San Mateo Corridor Plan and Bay Meadows Specific Plan Amendment EIR 3-21 EDAW, Inc.
As part of the project, it is also anticipated that Bay Meadows and the Expo would exchange land to provide a straighter right-of-way for 28 th Avenue (see Appendix D for maps of the land that would be exchanged). It is anticipated that this land swap of approximately two acres would not alter the number of parking stalls currently on Expo land or any other aspect of Expo operations. Construction It is anticipated that the proposed project would be constructed in phases over a ten-year period between 2004 and 2014. As discussed above, the project sponsor is seeking authorization for development to occur over 20 years. Since complete build-out could occur in as few as ten years, this EIR is using 2014 as the build-out horizon to be conservative in the analysis of environmental impacts. The Specific Plan Amendment links proposed development to specific circulation, open space and infrastructure improvements required to support development. Completion of the circulation, open space, or other infrastructure required for a particular phase would be a condition precedent to the issuance of the Certificate of Occupancy for the development of such phase. 3.4 PROJECT SPONSORS OBJECTIVES San Mateo Corridor Plan The following goals developed and approved by the Community Advisory Committee (CAC) were used to guide the creation of the Corridor Plan and represent the objectives of the project sponsor (the City of San Mateo): 1. Encourage well-planned, compact development with a range of land uses, including housing, commercial, recreation and open space uses, in proximity to train stations. Compact development shall minimize the need for automobile use and encourage walking and the use of transit. 2. Improve pedestrian, bicycle, shuttle, and vehicular access by creating direct connections to the train stations and other transportation facilities and local destinations. 3. Identify needed transportation and public improvements including train station enhancements. 4. Create opportunities for land use change that are compatible with and add value to surrounding neighborhoods. 5. Enhance economic development opportunities consistent with the City's Economic Development Strategy. 6. Improve local traffic conditions in study area. 7. Protect and improve neighborhood quality of life. 8. Create opportunities for land use change that are balanced with the circulation system. San Mateo Corridor Plan and Bay Meadows Specific Plan Amendment EIR 3-22 EDAW, Inc.
Bay Meadows Specific Plan Amendment Guided by the CAC goals, the following are the objectives of the Bay Meadows Land Company, project sponsor of the Bay Meadows Specific Plan Amendment: 1. Transit Oriented Development Create a mixed use and walkable new neighborhood in San Mateo that maximizes the use of transportation alternatives to the private automobile, especially public mass transit associated with the proposed relocated Caltrain Station, while minimizing impacts to adjacent residents. Create a new neighborhood at Bay Meadows that justifies the provision of an express stop Caltrain Station. 2. Land Use and Community Design Provide a complementary mix of land uses and amenities including employment, housing, commercial services, civic open space and facilities, and transit. Provide open space amenities, both passive and active, to serve the neighborhood and the broader San Mateo community. Concentrate neighborhoods and bring within walking distance most daily activities to enhance community life, efficiently utilize land resources, and reduce reliance on the private automobile. Create a safe and attractive neighborhood through the design of streets, parks, buildings and buffers. Protect the character of surrounding residential neighborhoods with adequate landscaping, set backs, and buffers, while providing pedestrian connections. Provide a variety of housing types consistent with transit oriented development that include both ownership and rental opportunities. Enhance the potential of the Expo Site. Provide neighborhood serving retail that enhances access to goods and services adjacent to nearby neighborhoods. 3. Transportation Reduce reliance on the private automobile by enhancing opportunities for transit ridership, walking, and biking. Maximize utilization of the train station by integrating it into the development, and providing complementary adjacent land uses that make its use attractive and convenient. Build an interconnected street and pedestrian access network that establishes direct routes to the new neighborhoods, and gives an appropriate scale to the development, and knits Phase II into surrounding neighborhoods. Reduce traffic compared to other development by providing a mix of commercial and residential uses in proximity to transit. Balance creation of neighborhood streets with the need to accommodate neighborhood traffic and the sharing of city-wide traffic. San Mateo Corridor Plan and Bay Meadows Specific Plan Amendment EIR 3-23 EDAW, Inc.
Complete the City's street grid and General Plan connections to enhance traffic conditions throughout the city. Encourage transit utilization by existing adjacent neighborhoods. 4. Economic Development Provide workforce housing to assist the City's goal of a housing/jobs balance. Provide for a new corporate office area thereby supplying the existing and future space needs for employers in San Mateo. Insure job and tax base retention, economic development and growth for San Mateo and the region. 5. Infrastructure Provide adequate infrastructure services to the Specific Plan Area, while avoiding negative effects on existing services and facilities. Provide a new neighborhood express stop. 3.5 APPROVALS REQUIRED San Mateo Corridor Plan The Corridor Plan itself is a policy document that provides a framework for long-term development. After review and comment by the CAC, it is anticipated that the Corridor Plan would be forwarded to the San Mateo Planning Commission and ultimately to the City Council for their review, comment, revision and approval. If it is approved by the San Mateo City Council, the first implementation step would be approval of conforming amendments to the San Mateo General Plan as part of the on-going General Plan update process. The Draft Corridor Plan includes policies establishing a new TOD land use designation and zoning classification that would permit mixed uses with increased allowable heights and floor area ratios (FAR) in certain very specific parcels near the Hayward Park and relocated Hillsdale transit stations. The plan also proposes specific street improvements and new streets, inclusion of an open space requirement, and a set of design guidelines to evaluate future development in the Corridor Plan Area. As described in greater detail in the Land Use section, to the extent the final Corridor Plan includes changes to heights and densities in excess of those provided in the 1991 voter-enacted initiative known as Measure H, incorporation of the Corridor Plan heights and densities into the General Plan would require voter approval. The City Council is expected to place any proposed amendments to Measure H on a ballot for voter approval, which would occur no earlier than November, 2004. If the ballot measure were to be approved, those elements of the Corridor Plan encompassed by the ballot measure would be incorporated into the General Plan as a result of that vote. At the time of the General Plan Update, or at some point thereafter, the policies of the Corridor Plan will be further implemented through adoption of new zoning standards consistent with the Corridor Plan policies for San Mateo Corridor Plan and Bay Meadows Specific Plan Amendment EIR 3-24 EDAW, Inc.