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REVIEW ENVISION STOCKTON 2040 GENERAL PLAN UPDATE
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RECOMMENDATION
It is recommended that the City Council review and provide guidance on General Plan goals, policies, and actions.
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Summary
The current phase of the Envision Stockton 2040 General Plan Update involves the development of draft goals and policies, aided by the input of residents, stakeholders, the Planning Commission, and City Council. During the last year, nine public workshops and open houses were hosted by the City and attended by hundreds of residents who provided valuable input to formulate the Plan. Feedback received thus far focused on the creation of a realistic and implementable set of goals, policies, and actions accommodating moderate growth and fostering improved quality of life. Well-crafted goals and policies are important to help guide future development decisions and shape the physical form of the City for years to come.
Based on earlier community input regarding the vision statement and preferred land use alternative, staff drafted goal language in the following topical areas:
• Land Use
• Transportation
• Community Health
• Safety
After presentation of the preliminary goal information, staff will receive input from the Council. This input will guide the preparation of the Draft General Plan document. After additional study sessions and public hearings, final action on the General Plan Update will occur in late Spring or Summer of 2018.
This phase in the General Plan amendment process involves the development of the draft Plan document. The draft Plan will contain several “desired results” also known as goals. Goals are important because they establish the basis for specific policies and actions to be implemented with approval of the Envision Stockton 2040 General Plan Update. Thus far, input focused on the following issues:
ü The preferred land use alternative has the smallest urban footprint of the alternatives considered
ü Preservation of agricultural land on the City’s boundary
ü Increased Downtown density
ü Re-investment within the existing city, especially in the South, East, and Greater Downtown areas (inclusive of new medical offices/clinics and shopping opportunities)
ü Crime reduction
ü Maximizing infill development of vacant and by-passed parcels
ü Moderate rate of growth
ü Improving the overall quality of life (e.g. healthy living)
ü Providing flexibility in the General Plan to accommodate a large public or private employer North of Eight Mile Road
Staff recommends that the City Council review input received and provide staff guidance regarding General Plan goals, policies, and actions for the draft General Plan Update.
DISCUSSION
Overview of General Plans
State law requires that each city and county have an adopted General Plan. Land use decisions are guided by goals and policies outlined in a General Plan. Land use decisions answer questions such as where the City can expand, how much expansion is anticipated, and what type of development is desired. The General Plan affects the fiscal health of the community through the implementation of policies that set service levels for facilities and services such as roadways and other public infrastructure, parkland, public safety staffing, and additional community services such as library and community centers. These service levels affect the annual budget and capital improvement and maintenance costs. The General Plan also promotes the health of the community by regulating the design of new development to be walkable, bike-friendly, flood- safe, and protected from excessive noise.
Goals, Policies, Benefits, and Costs
The goals, policies, and actions in a General Plan guide service levels that directly influence the costs related to development projects and operation of city government. For example, the adopted 2035 General Plan contains goals and policies that establish police and fire response times and minimum staffing of sworn officers and firefighters. The plan also contains service levels for libraries, parks, community centers, traffic, water, sewer, drainage, and flood control.
Meeting these goals, policies, and implementation measures require the City to commit additional personnel, facilities, and equipment as the population increases. These actions, in turn, are reflected in the General Fund budget as increased expenditures and can result in additional private project development costs in the form of development impact fees and property assessments. As the City evaluates new or amended goals and policies that affect service levels, the relative costs and benefits of such changes should be considered.
Background
Since the current General Plan was adopted in 2007, significant economic and demographic changes occurred, prompting the City to update its growth and development assumptions. The City is committed to updating the General Plan in a fiscally sustainable manner. The City is also mindful of the prior lawsuit regarding growth outlined in the adopted 2007-2035 General Plan and the settlement agreement (tolled to September 22, 2018) aimed at resolving the litigation.
General Plan Update Process
The public process to update the General Plan includes the following major steps:
• development of background information;
• conducting public outreach;
• developing a vision statement;
• preparation of land use alternatives;
• development of goals, policies, and actions to implement the Plan;
• environmental review;
• public workshops and meetings;
• recommendation by the Planning Commission; and
• approval by the City Council (Attachment A).
Visioning Workshops and Vision Statement
During 2016, the City hosted a series of workshops for community members to learn about the General Plan update process, review existing conditions, discuss their visions for the future of Stockton, identify areas of the city where positive change might most likely occur, and discuss key land use and related issues that should be addressed through the General Plan update. Participants offered input through small group discussions, responding to questions aimed at identifying a community vision to guide the 2040 General Plan (Attachment B).
Land Use Alternative Workshops and Study Sessions
During late 2016 and early 2017, the City held three workshops for the public to learn about what basic land use alternatives should be addressed through the General Plan update. Participants offered input through their review of the Land Use Workbook and a small group exercise responding to questions aimed at ranking preferred outcomes for; city boundaries, type of development, public safety and services, fiscal health, transportation, and rate of growth, among other issues.
During March and April 2017, the Planning Commission and City Council provided guidance at Study Sessions on the selection of a draft Preferred Land Use Alternative. (Attachment C). Staff was ultimately provided guidance, consistent with public input, to analyze Alternative “C” with some modifications to recognize the potential for major job-creating land uses North of Eight Mile Road.
Alternative “C” has the smallest urban footprint of the three land use alternatives and contains the following attributes:
ü Preservation of agricultural lands at City periphery
ü Most significant character change focused in Downtown
ü Higher intensity mixed-use Downtown
ü High density in and near Downtown
ü Professional offices on South Airport Way
Revisions to Alternative “C” per Council Guidance:
ü Increase opportunities for grocery store(s) along South Airport Way
ü Provide opportunities for medical offices near Weston Ranch
ü Provide flexibility for employment/economic generator north of Eight Mile Road
Present Situation
The current phase of the Envision Stockton 2040 General Plan Update involves the development of the draft Plan document aided by the input and guidance of citizens, stakeholders, the Planning Commission and City Council. Feedback received thus far focused on the creation of a realistic, and implementable set of goals, policies, and actions accommodating moderate growth and fostering improved quality of life.
Goals, Policies, and Actions
A General Plan describes key land use issues, goals, policies, and actions to address those issues, as well as accompanying maps and diagrams. To date, the Envision Stockton General Plan Update focused on crafting a shared community vision for what Stockton can be in the year 2040, as well as a “preferred land use alternative - Alternative C” that will become the General Plan land use map. The Update process is now turning its primary focus to the development of General Plan goals, policies, and actions.
The following provides a description of goals, policies, and actions and explains the relationship between them (per the State of California General Plan Guidelines):
• A goal is a description of the desired result that the City seeks to create through the implementation of its General Plan.
• A policy is a specific statement that regulates activities in the City, guides decision-making and directs ongoing efforts as the City works to achieve a goal. General Plan policies establish standards that will be used by City staff and the Planning Commission in their review of development projects and related City decision-making.
• An action is a measure, procedure, or technique intended to help reach a specified goal. The “to-do list” of actions to support the General Plan will be compiled in a separate, easily updatable document.
The goals, policies, and actions included in the draft Envision Stockton 2040 General Plan guide the City on how to direct change and manage resources over the next 20 years. The first step is to draft, discuss, and receive direction from the Council on goal language from which, more specific policies and actions will be promulgated.
Draft Goals
Based on the vision statement, and community input on the preferred land use alternative, City staff and consultants drafted the following goals for the General Plan, organized by the four topics shown below.
Land Use:
• Become more of a regional destination that attracts visitors and invites residents to enjoy a diverse array of events and arts, entertainment, and dining options.
• Protect and preserve the authentic qualities of Stockton’s neighborhoods and historic districts.
• Restore underserved areas into vibrant neighborhoods that stimulate investment and offer high-quality, affordable housing, a range of employment options, enhanced social and health services, and active public spaces.
• Incentivize high-quality housing and commercial uses in the Downtown to infuse the area with 24/7 retail, dining, entertainment, and other activity.
• Attract and retain companies that offer high-quality jobs with wages that are competitive with the region and State.*
*At its April 4, 2017, meeting on the land use map, the City Council provided guidance that the General Plan have the flexibility to allow a major employment and economic generator to locate in the area north of Eight Mile Road. This goal will include a policy to respond to this direction.
• Prioritize development and redevelopment of vacant, underutilized, and blighted infill areas.
• Define discrete and clear city edges that preserve agriculture, open space, and scenic views.
• Integrate nature into the city by maintaining Stockton’s urban forest.
• Promote water conservation as an important part of a long-term and sustainable water supply.
• Protect, restore, and maintain natural resources in Stockton.
• Coordinate planning efforts among City departments and with regional agencies.
Transportation:
• Maintain an integrated transportation system that enables safe and efficient movement of people and goods for all modes of travel.
• Create complete and safe streets in all neighborhoods in Stockton.
• Develop safe and interconnected bicycle and pedestrian facilities.
• Connect housing and employment development in areas with good transit access.
• Offer opportunities for the entire Stockton community to maintain active lifestyles through transportation choices.
• Facilitate expanded flight service at the airport to fuel business and employment growth.
• Support goods movement through Port of Stockton operations and development as an asset to the community and a source of jobs.
Safety:
• Create a safe and welcoming environment in all areas of the city and at all times of day and night.
• Invest in neighborhoods through a partnership with the community to help prevent violence and crime.
• Design new development to support effective police and fire protection services.
• Minimize risks to the community from flooding.
• Protect residents and businesses from natural and human-caused hazards.
• Ensure that the entire Stockton community is adequately prepared for natural disasters and emergencies.
Community Health:
• Provide opportunities for the entire Stockton community to maintain healthy lifestyles.
• Ensure that local youth and adults have access to the services and resources they need to enhance and renew their vocational and professional skills for job readiness and retention.
• Support both small businesses that serve individual neighborhoods as well as and large-scale retailers that generate sales from the surrounding region.
• Foster innovation through access to quality community education and library services.
• Maintain parks that are safe and accessible in all areas of Stockton.
• Reduce the unique and compounded health risks in disadvantaged communities.
• Ensure that all areas of Stockton have access to well-maintained utilities that meet community service needs.
• Exhibit leadership in sustainability among other cities in the Central Valley and beyond.
• Accommodate a changing climate through adaptation and resiliency.
• Improve local air quality and minimize the adverse effects of air pollution on human health and the economy.
• Protect the community from health hazards and annoyance associated with excessive noise levels.
Envision Stockton 2040 Goals Input
On May 1st and 2nd 2017, the City hosted open house events for community members to preview the community-identified draft goals listed above. The draft goals were presented at four stations, each focusing on one of the topics listed above. Community members were invited to visit each station and provide suggestions for policies to support the draft goals. A full report of the workshop input is provided in Attachment D and summarized below for each topic. Also, Attachment E highlights one draft goal from each subject area and the related policy input provided at the open houses as indicative of the full input on the topic to help inform the City Council discussion and direction.
Options for North of Eight Mile
During the June 8th and June 22nd Planning Commission study sessions, the attached options (Attachment F) were offered by staff to provide for the potential of a major, high paying employer to locate North of Eight Mile Road. Four major options (two map and two policy combinations) are listed and respond to the City Council’s direction to provide some flexibility in the General Plan to accommodate a major private or public employer. Some of the discussion on this subject centered around the idea of establishing standards or criteria for a development North of Eight Mile Road. The Planning Commission discussed possible criteria including:
Ø Type and mix of development (commercial, industrial, residential)
Ø Minimum number of jobs
Ø Above median income jobs
Planning Commission Discussion/Guidance
On June 8th and June 22nd, 2017, the Planning Commission held Study Sessions and provided guidance on Goals, Policies, and Actions that should be considered in the draft Envision Stockton 2040 General Plan. During the Planning Commission study sessions, a number of public and Commission comments were received. In response to City Council guidance at the April 4th study session, map and policy options were presented to accommodate a large private or public employer North of Eight Mile Road and are attached to this staff report (Attachment E).
Subsequent to the June 8th Planning Commission study session, staff received a letter from the Sierra Club dated June 9, 2017 (Attachment G). The Healthy Neighborhoods Collaborative submitted a letter at the June 22nd Planning Commission Study Session (Attachment H). Representatives from Campaign for Common Ground/Sierra Club also spoke at the study session regarding their concerns regarding the “North of Eight Mile Road” options.
Next Steps
After receiving input from the City Council, staff will continue work with the consultant to prepare the draft general plan and environmental impact report which will be reviewed and discussed at additional public workshops in Fall/Winter 2017. After public outreach has been completed, the Planning Commission and City Council will hold public hearings to adopt the new 2040 General Plan in Spring/Summer 2018.
Financial Summary
There is no financial impact to the City because of the study session.
The Envision Stockton 2040 General Plan Update webpage can be accessed by using the following link:
<http://www.stocktongov.com/government/departments/communityDevelop/cdPlanGenDocs.html> <http://www.stocktongov.com/government/departments/communityDevelop/cdPlanGenDocs.html>
Attachment A - General Plan Update Schedule
Attachment B - Vision Statement
Attachment C - Preferred Land Use Alternative C
Attachment D - Goals, Policies and Actions Open House Input
Attachment E - Draft Goals Input
Attachment F - North of Eight Mile Road Options
Attachment G - Sierra Club Letter
Attachment H - Healthy Neighborhoods Collaborative Letter