DATE TO SUBJECT: ADOPTION OF GENERAL PLAN UPDATE DRAFT ... - Propel...

ACTION A

DATE: June 23, 2015

TO: Members of the City Council

FROM: Andrea Ouse, Community and Economic Development Director Mark Hoffheimer, Senior Planner

SUBJECT: ADOPTION OF GENERAL PLAN UPDATE DRAFT FUTURE SCENARIOS

RECOMMENDATION

By motion, adopt the General Plan Update Draft Future Scenarios, inclusive of recommendations made by the General Plan Working Group and the Planning Commission.

REASONS FOR RECOMMENDATION

The Draft Future Scenarios reflect an important milestone in a three-year planning process to comprehensively update the City’s General Plan. They are the outcome of 16 months of planning to-date, including two sets of Community Workshops, and related outreach activities, in early 2014 and early 2015. The Draft Future Scenarios are recommended by the General Plan Working Group (GPWG) and the Planning Commission for adoption by the City Council.

The Draft Future Scenarios represent three viable ways that Vallejo could evolve over the next 25 years. It is important to note that this is one step in a multi-step process leading to a Preferred Scenario later this year. Conceptual in nature, the three Draft Future Scenarios are intentionally distinct so that they can be evaluated on a number of measures, such as fiscal impact, traffic impact, and public health, and their relative merits understood. This evaluation will allow the community to make an informed decision – and to pick and choose each Scenario’s best features – when formulating a Preferred Scenario. The Preferred Scenario, in essence, will likely include features found in one or more of the Draft Future Scenarios. Adopting the three Draft Future Scenarios tonight will not limit what may ultimately be included in the Preferred Scenario, which will serve as the backbone of the updated General Plan.

BACKGROUND AND DISCUSSION

The General Plan Update is part of a set of long-range planning initiatives, collectively referred to as Propel Vallejo, consisting of the General Plan Update, Zoning Code Update, and Sonoma Boulevard Specific Plan. The General Plan Update will establish a comprehensive set of goals, policies and actions for how the City will grow and develop over the next 25 years. The Zoning Code Update will implement the General Plan, providing ordinances and regulations for use, form, design and compatibility of development. The Sonoma Boulevard Specific Plan will provide specific policies and regulations for both private development and the public realm for the portion of the Sonoma Boulevard between Redwood Street and Curtola Parkway. The three-year Propel Vallejo planning effort began in early 2014. General Plan adoption is expected in October 2016.

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Date: June 23, 2015 Subject: General Plan Update: Draft Future Scenarios

The discussion below provides an overview of the General Plan Update process, and it references Staff Reports and Agenda Packets that provide detailed background information and discussion that the reader should review. The figure below illustrates the major components of the General Plan process.

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The planning process for the General Plan Update includes several major steps: Engagement by GPWG, Economic Vitality Commission (EVC), and the Community; Analysis of Existing Conditions; Analysis of Existing Specific Plans Creation of Guiding Principles; Identification of Areas of Opportunity for future growth; Development of Future Scenarios for those Areas of Opportunity; Evaluation of the Future Scenarios and creation of a Preferred Scenario; and Preparation of the General Plan and its elements.

GPWG, EVC and Community Engagement

To facilitate the General Plan Update process, City Council created a 15-member General Plan Working Group (GPWG), consisting of at-large community members and representatives of City Commissions, to advise City staff and project consultants on the General Plan Update; to make recommendations to the Planning Commission and City Council on the Update; and to communicate information about the Update to Vallejo residents. Planning Commissioners Kinney, Scoggin and Adams were appointed by the Planning Commission to serve on the GPWG. Commissioner Adams currently serves as the GPWG Chair. In addition, the City’s Economic Vitality Commission (EVC), consisting of seven members, is charged with reviewing and assisting in the update the Economic Development Element of the General Plan.

In addition to attendance and participation at GPWG, EVC, Planning Commission, and City Council meetings, the community at-large has many opportunities to have their voices heard at major project milestones, as illustrated in the accompanying figure. Such opportunities include three sets of Community Workshops, and associated outreach engagements, including Open City Hall, at three project milestones for Guiding Principles, Future Scenarios, and the Preferred Scenario. The Propel Vallejo website (www.propelvallejo.com) provides information about the project and opportunities to provide comments through the site’s “Idea Wall”.

Existing Conditions

An important part of the General Plan Update process is understanding the existing conditions of Vallejo. Prepared by the City’s consultant and currently under internal review by City staff, with a public release date later this year, the existing conditions reports cover:

Biological Resources Cultural and Historic Resources Economic and Market Trends Fire and Emergency Services Geology, Soils, and Seismicity Hazards and Hazardous Materials Hydrology and Water Quality Library Services Parks, Recreation and Open Space Police Services Schools Transportation Utility Infrastructure

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http://www.propelvallejo.com/


The Economic and Market Trends is completed and available for public review on the Propel Vallejo website (www.propelvallejo.com – go to the Resources tab on the website).

Existing Specific Plans

The Draft Future Scenarios have been developed in consideration of major Specific Plans and Master Plans that have been prepared for prominent areas of the City, including:

Sonoma Boulevard Specific Plan (under preparation), 2016 Solano 360 Specific Plan, 2013 Waterfront Master Plan, 2007 Mare Island Specific Plan, 2005 Downtown Specific Plan, 2005 White Slough Specific Plan, 1995 Northgate Specific Plan, 1988 Hiddenbrooke Specific Plan, 1987

As the General Plan Update process moves forward, an important part of the effort will be to identify and consolidate the plans into the new General Plan, as appropriate and feasible, in order to have one reference document for land use and development considerations that reflects a comprehensive vision for the future of Vallejo.

For a map of the major Specific Plans and Master Plans, please refer to the Agenda Packet for the GPWG

meeting on April 27th 2015 (see Attachment 4).

Guiding Principles – Adopted by City Council on July 8th 2014

Adopted by City Council on July 8th 2014, the Guiding Principles are overarching, aspirational statements that define the kind of community Vallejoans want in the 25-year horizon of the General Plan. They reflect key concepts on which there is broad consensus, and they lay the foundation for all subsequent actions, including the formulation of the Future Scenarios and the General Plan’s goals, policies and actions. The Guiding Principles are the outcome of an extensive public outreach effort, including four Community Workshops, and meetings and recommendations by the GPWG.

For a full description of the process and the Guiding Principles, please refer to the Staff Report for the City

Council Meeting on July 8th 2014 (see Attachment 2).

Areas of Opportunity – Accepted by GPWG on November 10th 2014

The City’s Consultant Team, with City staff, identified Areas of Opportunity Areas in Vallejo, or those locations where significant change is foreseeable and where the change can have the most positive impact on sense of place, economic development, social equity, and the environment over the 25-year General Plan horizon. Information on properties located within the boundaries of the Opportunity Areas was provided through Solano County Assessor data, including information on vacant parcels, property values, and ownership details. The Opportunity Areas also complement, and sometimes overlap, the City’s existing Specific Plans and Master Plans. Accepted by the GPWG on November 10th 2014, the Opportunity Areas were the areas of focus for community participants at the February/March 2015 Community Workshops.

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http://www.propelvallejo.com/


For a full description of the process and the Areas of Opportunity, please refer to the Agenda Packet for the

GPWG/EVC joint meeting on November 10th 2014 (see Attachment 3).

Draft Future Scenarios – Accepted by GPWG on April 27th 2015 and Planning Commission on May 18th

2015

Based on four Community Workshops and associated public outreach activities in February/March 2015, the City’s Consultant Team, with City staff, took the broad ideas generated by the community and distilled them into three distinct Draft Future Scenarios, each of which describes a different way that Vallejo could evolve, and meet community-wide goals in terms of character, land use, and connectivity over the next 25 years. The GPWG, in a joint meeting with the EVC, accepted the Draft Future Scenarios, with minor revisions, on April 27th 2015 for consideration by the Planning Commission. Likewise, the Planning Commission accepted the Draft Future Scenarios, with minor revisions, on May 18th 2015 for consideration and adoption by the City Council. Discussed in more detail below, the effort today focuses on the review and adoption of the Draft Future Scenarios.

Conceptual in nature, the three Future Scenarios purposely focus on the Areas of Opportunity (discussed above), those areas in the City most apt to change over the next 25 years. Discussed in more detail in Attachment 1, the three Draft Future Scenarios are:

Scenario A: River and Bay City

Scenario A envisions Vallejo as a community oriented to the water, taking advantage of its scenic beauty and

natural setting and building on its rich legacy as a naval community. A vibrant downtown core and waterfront

would be the showpiece of the community, and a renaissance in this part of the city would complement

employment, residential and recreational activity on Mare Island and catalyze change in other key areas of the

Vallejo. New housing and residents downtown, and on the center and southern waterfront, activate this area of

the city day and night, drawing tourists and students as well. A new education campus on the south waterfront

consolidates Vallejo as a 21st Century college town.

Scenario B: New Town Center

Scenario B focuses future development around Vallejo’s thriving regional and commercial attractions to create

a new town center near the intersection of the freeways, to complement Vallejo’s historic downtown. In

essence, this scenario would promote two town centers – one with a regional focus on shopping and

entertainment at the crossroads of I-80 and Highway 37, complementing Six Flags Discovery Kingdom and

planned uses a the County Fairgrounds, and another with a local, residential historic focus downtown. Strong

concentrations of new jobs around the New Town Center and along both the Broadway and Sonoma corridors

north Sereno Drive help establish Vallejo as a regional employment center, with an array of restaurant and

entertainment options for off-work hours. In other key areas of the city, future development would generally

support existing land use patterns and help to foster a series of satellite neighborhood nodes.

Scenario C: Urban Villages

Scenario C envisions Vallejo as a network of connected village centers, each with a distinct character and

vocation. Future development is focused to support thriving village centers, while direct bus and bicycle

connections between the villages provide safe, easy routes for getting around the city. Vallejo draws on its

historic past, inviting tourists with charming bed & breakfast accommodations in heritage neighborhoods and a

visitor rail station at the Badge & Pass site.

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For a full description of the process and the Draft Future Scenarios, please refer to the Agenda Packet for the

joint General Plan Working Group/Economic Vitality Commission meeting on April 27th 2015 (see Attachment

4).

Moving Forward: Evaluation, Preferred Scenario, and Draft General Plan

Once the Future Scenarios are adopted by City Council, the three Scenarios will be evaluated (for fiscal impact; economic development potential; sustainability; public health and safety; transportation; utilities; and public services) and presented to the community for consideration this fall. The evaluations will help the community decide at the Community Workshops in the fall which scenarios, or combination of components from the scenarios, offer the most benefit. Based on community input and comments from the EVC, GWPG, and Planning Commission, a Preferred Scenario will be presented to the City Council for its review and adoption by the end of the year. The Preferred Scenario will serve as the basis for the creation of the General Plan later this year and in 2016, with its goals, policies, and actions and series of detailed citywide maps showing land uses, circulation, parks/open space, among other topics.

City Council Discussion and Adoption

In preparation of the June 9th City Council Meeting, staff recommends that the City Council review this Agenda Packet, with particular emphasis on the descriptions and illustrations of the three Draft Future Scenarios and the recommendations for revisions by the GPWG and Planning Commission and adopt the three Draft Future Scenarios with the recommended revisions, as described in Attachment 1: Draft Future Scenarios and Exhibits A and B: GPWG and Planning Commission recommendations for revisions.

Please keep in mind that three distinct scenarios are needed, and that they are critical to the process. The evaluation of the three scenarios, and their respective pros and cons, is an important step in reaching a Preferred Scenario later this year. The three distinct scenarios incorporate the full range of ideas expressed by the community, at Community Workshops and associated outreach activities as well as the GPWG, EVC, and Planning Commission, and they reflect a full range of land use patterns. Conceptual in nature, the scenarios are intentionally distinct so that they can be evaluated, and their relative merits understood. This evaluation will allow the community to make an informed decision – and to pick and choose each Scenario’s best features – when formulating a Preferred Scenario later this year. The Preferred Scenario, in essence, may include features found in one or more of the draft scenarios. Ultimately, the Preferred Scenario will provide the

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foundation for the goals, policies and programs of the General Plan and will be the scenario evaluated in the Environmental Impact Report.

At the City Council meeting, the consultant will deliver a presentation to recap the outreach process, outline the role of the Future Scenarios in the General Plan Update process, and introduce the three Draft Future Scenario concepts, including the recommendations by the General Plan Working Group and Planning Commission. The City Council will be asked to discuss the Draft Future Scenarios, suggest refinements, and adopt the Draft Future Scenarios for future evaluation.

FISCAL IMPACT

This action has no fiscal impact. The Future Scenarios are high-level concepts for how Vallejo could evolve over the next 25 years. Once adopted, the Futures Scenarios, and subsequent Preferred Scenario, will be evaluated for fiscal impact.

ENVIRONMENTAL REVIEW

This action is exempt from the California Environmental Quality Act (CEQA) because it is not a project which has a potential for resulting in either a direct physical change in the environment, or a reasonably foreseeable indirect physical change in the environment, pursuant to CEQA Guideline section 15378.

The Preferred Future Scenario, which will be developed later in the process, will be incorporated into the CEQA analysis of the General Plan Update. The Draft Future Scenarios could serve as alternatives in the CEQA analysis.

ATTACHMENTS

1. Draft Future Scenarios PacketExhibit A to Attachment 1: GPWG Recommended Modifications to the Draft Future Scenarios Exhibit B to Attachment 1: Planning Commission Recommended Modifications to the Draft Future Scenarios

2. City Council Staff Report, dated 7/8/14 – Adoption of the General Plan Update Guiding Principles3. GPWG Agenda Packet, dated 11/10/14 – General Plan Update Areas of Opportunity4. GPWG/EVC Agenda Packet, dated 4/27/15 – General Plan Update Draft Future Scenarios

CONTACT

Mark Hoffheimer, Senior Planner, (707) 645-2610 [email protected]. Andrea Ouse, Community and Economic Development Director, (707) 648-4163 [email protected]

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29

Planning Division ∙ 555 Santa Clara Street ∙ Vallejo ∙ CA ∙ 94590 ∙ 707.648.4326

RECOMMENDED MODIFICATIONS TO THE VALLEJO GENERAL PLAN UPDATE DRAFT FUTURE SCENARIOS

General Plan Working Group and Economic Vitality Commission Joint Meeting April 27, 2015

Scenario A: River and Bay City • In this scenario, emphasize that the Waterfront is our asset and an economic engine. A

shopping center can be built anywhere along a highway corridor, but Vallejo’s waterfrontis truly special.

• Activate the river for tourism and maritime-oriented job-generating uses; one avenuecould be to add small ferries/water taxis between Mare Island and the Central Waterfrontfor its students and employees; another is dinner cruises.

• Reference possible models for tourism-oriented development on the central waterfrontwest of Mare Island Way, such as San Antonio River Walk, Benicia, Larkspur.

• Clarify that development in Central Waterfront area will take place east of Mare IslandWay.

• Provide public access for boat launch in the Southern Waterfront Opportunity Area.• Keep river and wetland protected and provide setbacks for development on Parcel A of

the northern waterfront area.• Add college presence in the downtown (whether a branch of one of the institutions

already located in Vallejo or a new institution) – possibly a student union.• Enhance bike & transit connections to/from higher education institutions and clearly

show these on the concept map.• Clarify that the waterfront trail extends from the Southern Waterfront Opportunity Area

north to Mare Island Causeway and then connects with the San Francisco Bay Trail afterthat point.

• Add all bike and pedestrian improvements also included in Scenario C.

30

Mark.Hoffheimer

Text Box

EXHIBIT A

Draft Future Scenarios – Recommendations for Revisions by GPWG and EVC Page 2

Scenario B: New Town Center • Under this scenario, the new town center would create a regional or county center to

complement the local focus in downtown – make sure that new town center advancesplace-making for Vallejo.

• Emphasize fiber connectivity available to businesses along Broadway and Sonoma as away to spur economic development under this scenario.

• Leverage historic downtown and adjacent historic districts as a tourist attraction and aneconomic benefit.

• This scenario will provide a good focus on Waterfront while emphasizing economicdevelopment.

• Integrate a vocational training into this scenario to ensure local educational institutionsare training people for jobs in Vallejo. Consider vocational training facilities nearindustrial and employment areas. Also, look at conservation and environmentaleducation programs for youth and college age students as examples.

• Add all bike and pedestrian improvements also included in Scenario C.

Scenario C: Urban Villages • Emphasize a school – public, charter or private – as a focal point in each village.• Clarify that the mixed use development on the Badge & Pass site could include

neighborhood oriented uses like restaurants and a community center as well as food-oriented retail (like at the Oxbow Market in Napa)

• The name “Badge & Pass” recalls a past use that doesn’t match current possibilities. Inconsultation with community during the next phase of outreach, develop a new namethat changes perceptions of the site. One suggestion: “the Brickyard” to reflect anotherpast use of the site.

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Planning Division ∙ 555 Santa Clara Street ∙ Vallejo ∙ CA ∙ 94590 ∙ 707.648.4326

RECOMMENDED MODIFICATIONS TO THE VALLEJO GENERAL PLAN UPDATE DRAFT FUTURE SCENARIOS

Planning Commission Meeting May 18, 2015

Scenario A: River and Bay City

Emphasize broadband (fiber optic) technology downtown to support businesses and downtown revitalization

Clarify that a variety of housing would be provided downtown, including market rate housing and housing for seniors and for people with disabilities

Emphasize public transportation connections between downtown and other areas of the city

Emphasize regional public transportation connections, including connections to San Francisco

Note connections from eastern and southern neighborhoods to downtown and the central waterfront area on the concept map

Scenario B: New Town Center

Clarify that the New Town Center would incorporate office space, including multi-story office buildings, providing synergy to nearby shopping and entertainment

Recognize that the City will need to work with the County (Solano 360) to realize the area’s full potential

Note connections from eastern and southern neighborhoods to the new town center on the concept map

32

Mark.Hoffheimer

Text Box

EXHIBIT B

Draft Future Scenarios – Recommendations for Revisions by Planning Commission Page 2

Scenario C: Urban Villages GPWG/EVC said: “Emphasize a school – public, charter or private – as a focal point in

each village.” Change to: “Include a civic use that contributes to community life as afocal point in each village.”

Clarify that transit oriented development would be an impetus for change in the urbanvillages, as several are located near current transit hubs or proposed BRT stops

Emphasize that Vallejo’s location at the gateway to the Bay Area and Napa Valley andits historic heritage are assets that can be leveraged to build the local tourism industry

Note connections from eastern and southern neighborhoods to the urban villages on theconcept map

General Clarify that the Concept Maps of the scenarios are intended to highlight the differences

between the scenarios at-a-glance and not to show all the details. Note that thePreferred Scenario will include a citywide land use map and that the Draft/Final GeneralPlan will include a series of detailed citywide maps showing land uses, circulation,parks/open space among other topics. Other major features to map and amplify include:

o Major circulation routes on the eastern and southern parts of the Cityo Public schoolso Parks and open spaceo Other focal points of the community, including one at Glenn Coveo Other features in the eastern and southern sides of the City, including

Hiddenbrooke

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