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HomeMy WebLinkAboutCC Resolution 4854 (General Plan Open Space Elements)RESOLUTION NO. 4854 RESOLUTION OF THE CITY COUNCIL OF THE CITY OF SAN RAFAEL ADOPTING THE GENERAL PLAN AND AMENDING THE CONSERVATION AND OPEN SPACE ELEMENTS AS RECOMMENDED BY THE PLANNING COMMISSION. WHEREAS, Section 65300 of the Government Code specifies that a General Plan shall be adopted by the City; and, WHEREAS, subsequent sections of the Government Code were amended to increase from two to nine the number of elements that are mandatorily included if a plan is to be considered a General Plan in accordance with State Law; and, WHEREAS, the General Plan adopted in 1966 did not contain these elements; and, WHEREAS, in diligent response to the State requirements, the City Council in 1972 did authorize the preparation of a new General Plan pursuant to the current requirements of State law and intent of State law as further specified in the supple- mentary State Guidelines; and, WHEREAS, the City Council in good faith did then appoint a Citizen's Advisory Committee on the General Plan of over sixty members and representing all segments in the community to work with the consultants, staff and Commission with respect to input on the General Plan; and, WHEREAS, between that time and the present the City staff, Planning Commission and City Council have reviewed several drafts of said Plan with the public in numerous public hearings and at numerous open to the public workshops; and, WHEREAS, during the course of the preparation of this Comprehensive General Plan it was necessary earlier and separately to adopt the Conservation and Open Space Elements thereof in order to meet State deadline requirements; and, WHEREAS, subsequent to the completion of public hearing on and review of the balance of the General Plan by the Planning Commission and City Council, it became desirable to make minor adjustments in the Conservation and Open Space Elements previously adopted so that they might better relate to the balance of the General Plan; and, WHEREAS, all proper and necessary procedural steps relevant to public hearings on the adoption of the General Plan and the Amendment to the Conservation and Open Space Elements previously adopted have been completed in accordance with State law; and, WHEREAS, the Planning Commission feels that the draft of the General Plan and of the Amendments to the Conservation and Open Space Elements as presently worded constitute the product of exhaustive public hearing, review and research best designed to meet the needs of this City at this time; and, WHEREAS, the City of San Rafael Planning Commission at a special meeting on October 21, 1974, by a vote of six to zero with one member absent approved Resolution No. 74-6 by which it adopted the 1974 San Rafael General Plan and the amendments to the Conservation and Open Space Elements, all of which are attached to and made a part of that resolution and recommended the same to the City Council; NOW THEREFORE BE IT RESOLVED by the City Council of the City of San Rafael that the 1974 General Plan is hereby adopted, consisting of the text and maps attached hereto. BE IT FURTHER RESOLVED, that the Conservation and Open Space Elements as previously adopted are hereby amended as set forth in the General Plan attached hereto. BE IT FURTHER RESOLVED, that the text and maps which are hereby attached hereto and made a part hereof, which contain the amended Conservation and Open Space Elements, shall be considered as one document entitled "The San Rafael General Plan." . � ei L Hpa a �,. I, MARION A. GRADY, City Clerk of the City of San Rafael, California, hereby certify that the foregoing resolution was duly and regularly introduced and adopted at a regular meeting of the City Council of said City held on Monday, the 21st day of October, 1974, by the following vote, to wit: AYES: COUNCILMEN: Jensen, Mulryan, Nixon and Mayor Bettini NOES: COUNCILMEN: None ABSENT: COUNCILMEN: Miskimen MARION A. GRADY, City Clerk / -- - -------- ... --•---• --- ------ RENEE BURDISSO - Deputy City Clerk - 2 - Pik F�ko ��� #d-rLOA16A MAs—TE� COUNCIL «f h�Y�E�' presenting CI) ....... ... Eolloavl-1 a TABLE 1: Mandatory General Pian Elements• • • • • • • 1 TABLE 2: Land Use Policy Areas Implementation 1 INTRODUCTION A. The Nat.rre of the General Plan. 2a B. Uses of the General Plan . . . . . . • . . . • • 2b C. Statutory Contents of the General Plan. I. THE BASIC GOALS, POLICIES, PROCEDURES AND IMPLEMENTATION PROGRAMS OF THE GENERAL PLAN 2c A. The Six Basic Goals . . . . . . • (� B. The Basic Policies of ti -,c General Plan 2c C. The Lard Use Policy Areas anJ Implcmrulatiun. 3a ' D. Basic Procedures and Implementation Devices 3a TABLE 3 The Lor•q Tern Planning Process r:rm+- (Available at publiL hear ir.q) - P ��' II. CONSERVATIJtr AND OPEN SPACE A. Introd:ution - - 31,1 B. Polic:cs 4c Implenentat:on _ III LNVIRONMENTAI IIA:ARUS 4d A. Introd::ct ian TABLE 4. Site Invcs:,ya:ion Pcquirc'crtt> 8.l Relatior. to Land Use 8b R. PoliLirs ' C. Implenenl at , or. D. Raylards Evaluation Areas Sd N. HOUSING AND THE RESIDENTIAL ENVIRONHEN9 A. Introduction. . d � 1. Backgroun:l anal Surrrary of Issues lOa TABLE 5' Structure Types . . . TABLE 6• Housing Unit and Hcuscheld Size lab TABLE 7 Percent Gislrlbution of Hone Galur� I()C sti!` 2- Housing Problem. - - 70d 3. HousI nq and Pop.tlation Issues TABLE B Huusing Values. 13a 'r TABLE 9 Nynber of Occupied Dwelling units. 1960-197J 13a TABLE 10 Iiousir.q Units Car,st rutted. 1:3 1910 M3 13c TAii; E It Pcpul.,l ion Gcuwth. 1`990 TABLE li Populotron PrJjectiuns. 11. 1980 a: -J 1590 B. P�SiLret 13[ C. Implcr..e nidCrun (Management! Res.aential T.n,�•rt' 1301 and Crvelcp-snt). . . . . . . . 14a 1. P.csidential Revie. PrcccLl_tc . - 2. Residernlial Plan; . 14b 3. Potential Housing Programs ImP!r­ar,;tintF the Prevision of Owellinq units for all 14CI Segment.. of Wipufa;icm V. ROSINESS AND INBLSTRIAL REVIEW AREAS ALI, MULTI -USE ACTIVITY CENTERS 16a A. IntroduLtien- - I. Backgrour.�! an:1 Summary -u: lfa Icr the Lu•.ineas F.n4;r,.::7,•^t 163 2. Citywide ractora 3 Plans for Rusir.e:s anti In:fuslr•JI R,viltW 166 Arras. . . . , lbd 4 Pians for Multi ;.-r Act t, Cell tc•s 17b B. Pal>•• -.es, 17d C. Implementation, 17d I. Citywide Imple-en:alion.�• . • • 2. multi Arlivity Center ir..Plonesilatinn 17d 3• Short Terri Implemenlatl(In tut Norlhgalr 17d Vj- TRANSPGRTATIGN 19c7 A. Introduction i:19a I. State HigY.w.,7 ,l 19C 2. Public Safety Routes 19c 3. Dawntawn C)rculatian 19d 4. Public Transit 2Oa 5. Scenic Highways - 2Qa 6. Poiicies. . . 2Oe C Inple:nent:aion. tat 1 Capital icp.:.vcnr:t Prcgra:a 2OC { 2. Redeveleperent . . . . . 2Od 3. Bicycle 6 Pedcstriaa trail•, Pian, 2Od 4. Highway 101. 2011 5, ticrlh-South Ccnnccturs 2Od 6. East-Wca C::r.nectors 7. Local City Streets 21a 8. Public Transit 21a 9. Public Safety Routes 21b 10. Scenic High -J0 21d VII. NOISE . TABLE 2 LAND US POLICY AREA (SE MAP 1) EXISTING OPEN SPACE PRE RVES_ MULTI -USF ACTIVITY CENTER 1) Downtown 2) Northgate BUSINESS AND INDUSTRIAL REVIEW AS WATER ORIENTED REVIEW AREAS 1) San Rafael Day Shoreline 2) San Rafael Canal RECREATIONAL AND AGRICULTURAL REVIEW AREI 1) Northern Baylands 2) Galllnas Creek RESIDENTIAL AND OPEN SPACE REVIEW AREAS 1) Developed Land: 4 or fewer lots To, fewer lots 2) Undeveloped Land: 4 or fewer lots 5 or more lots TABLE I INDFX TO t%N91T0RY ,E-.iRAI PLAN ELEMENT, �j. Ei,-ihC iT-CODE: 1171,E 7, 0711NAI SUB-ELEOENTS F4l'M STATE GUIUELI NES) — .HAPTER L.LA:'•'N IN .r'li ';,Ili ItAF4l. ENx tr•�1 PIRN �~~---- CHAPTER I� J a S o V _ r • t 9 41 n E M E. h .. I O 'O C 4 `, Np ? � V � �t W 4 Di ,'rf-L•al �•:�. Lam'•:ilio^. G.lcni of; orf .. ii.. •• t, ^er.s. . . . . . . . . . . . . . . . . J LN L -,LEI'.! ' Nat oral hr :roc laaJ •--�L-tJ . . . . . . . . . r ISHIC S-1 I fY L!. Li;zllT "JF i1,'. L• l,.'•1 :'aJ C�nq D. Gro::r•d :hat enr,. . . . . . . . . . C. Gr(jor•d Fal lar es . . . . . D^ 'W`ave Ll fcc is .. . . . . . . . . SicFEIY ELErtEllf n. Ecatuot1cn q_uten . . . . . . . . . . . . 0. Geoioq�•: 1Uzard Eta:P..•g HOUSIKG Ftct:iGi A. Sta_"rd-•nI Plans far Improvement . . . . p, t,Jceuatr S,tcs . . . . . . . . • . . . . . i.. !trcds u, JII E�ar._•r�c Scm.cnts CIPEULATl0a ELF- -!-i A. Ildjcr !nuiaughfares . . . . . . . . . . . B. Trar.sp-)rrJt,on P.outcs . . . . . . . . . . . !:. Ter-.--als . . . . .•. . . . . . . D. Ltl-er Public 'JL1L,t,r, aidizcrl,rlcs SCEU;C H1GIfJA ELEMENT !iGt�E ELCHiEN'T A. rli r�hi:- and Ire..^du,s U. Groand ieJp iJ TrJ:•s,i - f F r t • :.'T Ai• 'HILH THF'. CITY 4AY TAKE �• � —1••'!~--fir r-� '—_T_-T'�—__7_. ,-r._. J I- f F r t • * * 4 ke L.•n Plan I- * * 4 ke L.•n Plan INTRODUCTION HE NATURE OF THE GENERAL 4 General Plan identifies goals, defines policies, and establishes new pro - res to govern public decisions and ate actions within the San Rafael ring Area. The planning process set i here requires that the City and its lents consider and enter into a irehensive planning program over a dof several years. This General Plan is that program. General Plan deals with four major erns of the people of San Rafael: improvement of the quality of life vironmental quality. z)nomic growth and balance. rhe availability of housing for various neome groups and life styles. plan sets forth the general policies can contribute to the preservation of ronmental quality while also pro- ng economic growth. The Plan also ides for policies and procedures to t the increasing need for maintaining minimum the existing balance of ring within the City and increasing irtunity for moderate and middle me mousing. eral Plans, or more accurately, the use elements thereof, traditionally not had a specific legal effect on the to which an owner can put his land; -ific Plans and development of ronmental management ordinances and will continue to have such effect. General Plans have had practical use ;sessing the potential effects of a given .1opmeit proposal for public improve - it.. However, General Pians are now •n far greater legal weight than iousl� and they are more clearly the s for controlling the rit.,LLt of pi ivate ties who wish to develop their land. ordingl4', the General Plan is the !ssary and legally required precursor and use regulations. Area Plans, cifit_ Plans. capital improvement tgranis, and plans or prograrns in- •ing, the City in Uie public recreation, sing and other social needs of its relit residents and those who will •settle an Rafael in the future. JSES OF THE GENERAL PLAN adopted San Rafael General Plan has eral important uses: ;islative To meet the requirements of the State Planning Act of the California Government Code with respect to man- datory elements, and con- sistency of zoning regula- tions with the land use element of the General Plan. It is clear that the Legislature's intent is to lead cities and counties into a new era of planning where General Plans be- come policies and pro- grams and are not merely guidelines licy To clarify and articulate public policies and the intentions of the City Coun- cil with respect to the rights and expectations of the general public, proper- ty owners, and tenants. b Educational To enable local residents, public agencies, prospec- tive investors and busi- nessmen to become in- formed of the City's long- range and short-range goals, policies, and de- velopment standards; and to provide a factual basis for a better determination and understanding of these goals, policies, and stan- dards- Coordinative To establish a basis for coordination, understand- ing and negotiation among public agencies which have responsibilities within the San Rafael Planning Area, and to present San Rafael's position on regional and local issues appropriate to its concerns and responsi- bilities C. STATUTORY CONTENTS OF THE GENERAL PLAN The General Plan as defined in the Government Code of California is a statement of general policies and pro- cedures governing the physical develop- ment and environmental quality of the Planning Area i i e , " of the city , .. and of any land outside its boundaries which in the Planning Agen- cy's judgment bears relation to its planning" -- Government Code, Section 65300)- According to California law, a General Plan is to be adopted by the City Council, after public hearings, upon recommendation froni the Planning Com- mission (which niust also hold public hearings). It is to include, hist not be limited to, policies Caverning 1. Land Uses General distribution, general location and extent of land fur housing„ business, industry, open space, agriculture, natural resources, recreation. education, public buildings and grounds, popuk.ticn density policies, building intensity policies, and identification of areas subject to flooding; location and policies, governalp, .did and liquid waste disposal facilities 2. Circulation General location and extent of existing and proposed major thoroughfares, transpor- tation routes, terminals, and otlu r public utilities and facilities 3. Housing Standards and plans for the improvement of housing and for provision of adequate sites for housing i for the nerds of all economic segments of the community 4. Conservation Conservation, development, and utiliza- tion of natural resources including water and its hydraulic force, forests, soils, rivers, and other waters, harbors, fisheries, wildlife, minerals and other natural resources. 5. Open Space Policies governing essentially unimproved land or water which is a natural resource, agricultural land, recreation land, scenic land, watershed or ground water recharge area, and wildlife habitat. 6. Seismic Safety An identification and appraisal of seismic hazards such as susceptibility to surface ruptures from faulting, to ground shaking, to ground failures, or to effects of seismically induced waves such as tsunamis and sieches. 7. Noise In quantitative, numerical terms, an analysis showing contours of present and projected noise levels associated with all existing and proposed major transporta- tion elements. fq S. Safety Policies for Rhe_ protection of the community from fires and' geologic hazards including features necessary for protection such as evacuation routes, peak load water supply requirements, mini- mum road widths, clearances around structures, and geologic hazard mapping in areas of known susceptibility - 9. Scenic Highways Policies for the development, establish- ment, and protection of scenic highways (pursuant to Section 260 of the Streets and Highway Code). (Source: Government Code, State of California, Sections 65300.65303 and 65560) I. THE BASIC GOALS, POLICIES PROCEDURES AND IMPLEMENTATION PROGRAMS OF THE GENERAL PLAN A. THE SIX BASIC GOALS In order to deal with the concerns of environmental quality, economic balance, housing, and the quality of life, six basic goals are expressed here as underlying the San Rafael General Plan. These basic goals are compatible with the basic goals of the Marin Countywide Plan. Their interpretation in the San Rafael context, and the policies and implementation programs adopted for and by San Rafael, are specific to San Rafael's needs. The Plan's basic goals are. Goal 1: To preserve the high quality and fragile natural environment of San Rafael by adopting citywide and area specific policies and programs for open space pf (' servation and management of the cr,v.ronnient Goal 2. t'o ensure that growth and development occurs in an orderly fashion in accordance with adopted policies and procedures gutierning the use of land, residential development, the provision of services, and the distribution of new housing units throughout the Planning Area. Goal 3: To encourage the kind of economic growth and development which supplies jobs and economic self-sufficiency for existing and future residents, reduces the present heavy reliance on the commute to San Francisco, and maintains the City's ability to finance public improvements, human services and its open space character. Goal 4: To provide conditions whereby hGusing for the existing variety of social, cultural and economic groups will be maintained. Goal 5: To preserve and improve the character and quality of the man-made portion of the environment Goal 6: To encourage cultural, educational and recreational facilities and activities, ensuring their availability to all segments of the population B. THE BASIC POLICIES OF THE GENERAL PLAN The following basic policies underlie and shape the character and orientation of the General Plan: Basic Policy 1: Population Growth —Itis the policy of the City of San Rafael to discourage disruptive population growth within the Planning Area. d 2 Basic Policy 2: Population Mix — It is the policy of the City of San Rafael to 1) meet, through the positive actions of public agencies, the needs of all existing social and economic components of a's population and 2 aintain as a minimum the existing proportion of housing for those with low or modera income, 3'� whenever possibl rising opportunities e for low and moderate income persons. Basic Policy 3: Economic Development — It is the policy of life City of San Rafael to stimulate and give preference to those types of economic tL activity and development which provide a local opportunities for employment and It which reduce the need for people to commute. t Basic Policy 4: Land Use -- It is the policy of the City of a San Rafael to recognize 1) the importance fi of land uses to the quality of life and environment, 2) the duties as well as the rr rights of land ownership, 3) the role of the c City to regulate the use of land resources for the benef it of future generations, and 4 ) the desirability of joint use of public facilities wherever feasible. ►: Basic Policy S: Open Space -- It is the policy of the City of San Rafael to create an integrated pattern of open space areas throughout the Planning Area to serve as --greenbelt dividens between urbanized areas and also c preserve those lands as an open space which are uniquely suitable because of environmental resources (flora, faunal or recreation park potential. Basic Policy 6: Environmental Quality Management — It is the policy of the City of San Rafael to 1) protect and improve the environmi'ptal quality of the Planning Area - its air, water, noise levels, views, scenic qualities. landscape, and wildlife, 20"to protect this ridgelines, the tidal marshes, acct,,,; ti, waterways, and 3► t.) adepi a, un 14 programs programs which will c-ntribute to ►he area's improved t nt ironniental qua:iiy C` "To be implemented by a Residential 1k Review Ordinance s draft ordinance mail- able in the Offices of F'Wnning V4,art• h ment). �- —s Basic Policy 7: Presumption in Favor of the Environment 4'; —It is the policy of the City of San Rafael to h 1) utilize and rely heavily on soil, geologic, seismic and other physical and environ- !^ mental information as significant bases a for shaping public policy decisions within the Planning Area, and 2) require that all public and private proposals which are 1Z likely to alter the environment significant- ly should explicitly show cause why such a �. changes are justified. a Basic Policy 8: R (lousing Development — It is the policy of Z ^ the City of San Rafael to encourage that x the overall balance of public and private ►L v` proposals for residential development and *0 lit housing include a variety of densities, V. °o housing types, and housing opportunities it e for all components of the population. X 2 t:t ' Basic Policy 9: Neighborhood Planning — Encourage locali• representative groups to engage in the " ` planning of their areas and to establish objectives and guidelines for environmen- tal improvement, housing, local transpor- tation, recreation, parks and open space, and to consider along with other factors locally expressed preferences prior to .- adopting final neighborhood plans. (f A 'r`t. Basic Policy 10: Mixed Land Use — Include provisions for residential development of varied types in the plans and proposals for the Downtown and Northgate Activity Centers. Basic Policy 11: Downtown Activity Center — It is the policy of the City of San Rafael to enhance the potential of Downtown, to improve its physical character and amenities, and to usage in We prowess of comprehensively "Oveloping Downtown to make it a .titive business (specialty shopping, .,atcial services) and tourist center; an ractive place to invest; a human 3vity center (fraternal and service club tivities, personal services, govern - Mal act.iv;ttes, cultural activities); and s:ialiaed living envirenmeaat. sk Policy 12: rthgate Activity Center — It is the policy he City of San Rafael to establish the •thgatc area as a major Marin County ivity center, is hub of business, retail, :ural, res dential, toe:,&t, :and govern - at"! activities. :/c Po-3fcyr 13: awed Transportation — U is the policy he City of San Rafael to support 1) the elopment of a balanced transportation _i (roads, mass transportation sys- Acycle paths), 2) a reduced level of ,ate automobile usage when and where !rnatives are available, 3) the mooi- ng and regulaLon of transportation - crated noise, and 4) freeway improve - its to Route 101. le Po lkcy 1119: reation and Parks Development — It is policy of the City of San Rafael to ate and provide a comprehensive 'eational park system of open areas, facilities including l) Nature Reserva- s; 2) Neighborhood, Community and wide Parks; 3) Beaches and Water- 's; 4) Parkways; and 5) Special Use reationai Areas and Facilities distri- d throughout the San Rafael Planning b will be applied within the proposed Residential Review Area although it will also apply where residential development is proposed in the two Activity Centers. Its Purpose is to ensure that the City's social and environmental objectives are met, and that the rate of residential develop- ment is managed according to the ability to provide public services and utilities, and in a manner which does not aggravate existing problems such as traffic conges- tion and air pollution. Zoning — Conventional zoning is to be applied in a similar manner now used within the existing developed areas. Area Plans, Specific Plans, and in some cases Redevelopment Plans, will be applied within these areas. Conventional residen- tial and neighborhood commercial zoning regulations will also be applied within the existing developed areas. Outside the existing developed areas, a new type of land use regulation will be applied: In this E;raEA the Residential Review Procedure and the Residential REviEW ' Ordinance will prevail, althoul;h developments of TaytlFC¢c,;trtai,p,,y;ise�;nFPArt,ELtWill be processed according to the standard rezidential zoning requirements with the addition of the environmental standards expressed in the Residential Devviopment Ordinance The purpose served by this new land use regulation, the A&ip.rirfi. hcj.cc C,u7,r,Af.'tt; is to ensure that wnen acve!opment occurs, the natural environmental values will be recognized and protected. IE LAND USE POLICY AREAS ARID -EME'NTATiON 'rasnework for physical and environ - al planning having the most signifi- acd overriding influence involves the .ort of the Planning Area into land use i areas. The Land Use Policy Areas (see Map 1), are: X -Stint; Ogen Space Preserves Iulti-tie Activity Centers usin(ss and Industrial Review Areas ,ecreational and Agricultural Review real rater Oriented Review Areas tesidenhal and Open Space Review real a. Developed Land b. Undeveloped Land AWA 1ASiC PROCEDURES AND IM- EMATIOPI DEVICES meedures and basic implementation s are described here and their )nships to each of the Land Use • Areas are summarized in Tab1F ?_ are also spelled out in full in the priate sections of this document. nidal Review Procedure (RRP) — RRP and its legal basis, the sinal Review Ordinance, apply in ituation in whir.>> roux or more atial units are proposed or in which more parcels are being created for atial purposes. Primarily the RRP Area Plans -- These are propirsed for Northgate and the Business Preserves. The Area Plan is more preci,;e than the citywide General Plan and serves as the basis for designating Specific Plan sub -areas and other City actions Neighborhood Plans — There will be a specific plan for each residential neighbor hood, prepared with input from the neighborhood association. Specific Plans -- As mentioned above, Specific Plans will be prepared in the Business Preserves, the Activity Centers, and along the Canal. Specific Plans may also be used to guide improvement, infilling, and redevelopment of existing residential neighborhoods. Specific Plans are detailed plans prepared by a public agency for designated parts of a community, which plans can indicate the exact location of structures, open spaces, streets, etc., within the area, and which " .. shall include all detailed regulations, conditions, programs and proposed legis- lation which shall be necessary or convenient for the systematic implemen- tation of each element of the general plan ...". (Section 65451, Government Code). A Specific Plan pertains to a designated sub -area within a citywide planning area or within the territory covered by an Area Plan. It is intended as a necessary or convenient means for implementing the citywide General Plan or an Area Plan. When adopted, Specific Plans for specific areas (several lots, or several blocks, or a neighborhood) may complement or sup plant regulations typically found in zoning ordinances. Specific Plans, if and when C Prepared and adopted, shall (by law) include detailed regulations, conditions, ordinances, programs and proposed legis- lation necessary to implement each element of the General Plan or Area Plan systematically. Specific Plans shall include, but not be limited to, regulations, conditions, and Programs governing: Location of uses, structures. and facilities — A specifically mapped location of the building envelope, Off-street parking, building setbacks, unbutldable areas, and hazardous areas - Location of streets and roads — Location, width, construction stan- dards, and maintenance standards of all tranFl,orlation facilities and rights-of-way. Standards for paptil.a^-iun density and building intensity - Lot sizes, per- missible and requr:ed types of construction, buildizn height limits, requir,,d types of construction, and required residential f-cilities. Randards for the cwisvrt atioa of natural to ,artes :-rocedures for flood c tr I, prownt:: n of pollution, re,ula an c and u. ­s in w,"fe ays. control f l or,, -1{;.i, protection of wateml:cd areas preservation of forests, atht r %t 9etat.GA and wildlife. (Open hpn c 1rip7enaentaUan — Pro - grains I r matically identifying and pi, r?, rt np, n space lands, inelu 4 n ri .,lia:t, %,ithm,;eparate parcels uthr, . c,'! "t, •.i,r,;ser Treasures 'Mal, Li re• _ ._r,, w ccnve!fient to ensure 111e (.i •fatten Lf the General Plan or .1rca Plan. Source GOWrnment Code, State of California, Section 65151. The purpose of the Slaec,fie Plan is to enable the co) t3 take the initiative in planting a spec!, is area in detail -- to set the precise conditions and physical limits of development, to establish what shall be developed and where The private developer is obliged to agree to prescribed terms as a condition of development approval. In principle, the Specific Plan closely resembles the kind of planning and land development regulations to be expected in a redevelopment project area and is not unlike v hat reside ntial property owners in some subdivisions agree to in deed covenants and restrictions at the time of lot purchase. Unlike the regula- tions of the traditional zoning ordinance, which allow certain develop" freedom on each lot, with few limitations, the Specific Plan may tie mdi%Auai parcel -by - parcel development into a larrer set of actions and regulations governing several parcels and may prescribe specific and unique requirements that are not possible in a more generally mapped zoning district. Rede%elopment Plan -- 'ftlt• purpose of preparing a Redevelopment Plan is to define in more precise terms than can be done in a general plan, the exact land uses and implementation programs needed for the area to be redeveloped. The Re. development Plan for Central San Rafael may include or encompass an Area Plan, as such is defined here, and a Specific Plan for parts of the Downtown may be considered appropriate. The process of redevelopment is well defined in State statutes and is intended for Downtown At the very outset the Redevelopment Agency should be con- sidering the broadest possible role for itself as an agency of the City. It need not be limited to the Downtown project area: it could establish project areas elsewhere in the City to accomplish similar public purposes It al -o need not be regarded strictly as a biukcr between the City and 'd private developers or as an agency who. principal objective it, to maximi economic benefits -through' increase property assessments, although these a entirely legitimate and traditional r development purposes. Local redevelopment authorities serious underestimate their power and leverage control the developments in which they a: involved. They may impose virtually at reasonable condition upon the sale, leas use, and design of properties mar available through redevelopment, at they should do so in order to shape project's success and conformity to pubi policies The ' rucces s" of a pr. Yecl need nit 1 mea_ ured ,.trtctly in terms of its a bility generate more tax revenue and to pay o tax increment bonds. Redevelopmet authorities should ensure that soft reasonable prrportton of the pro(i generated by the actions of redeveloptrei come back to the community on .sho! behalf those actions were made. An e:?'o shculd be made at an early juncture in ti process of redevelopment to examine tl feasibility of -,uch a policy and the inrat whereby profits generated by redevelol meet are shared with the City. Prot -20 vnurf;ics :houlcl also t",e citrecte toward providing opportunities for ne, he(i iR , for persons and familie_, at readily able to •secure hcusirg in ct rtai low and moderate cast ranges or areas ( the City, and toward creating new jo opportunities The General PI. -in has as its tloai . continuing long term planning pro( -(°s which will make tlc plan increa•;ingl: comprehensive and more accurate it specific detail. C CHAPTER II CONSERVATION AND ®PES SPACE A. INTRODUCTION In its discussion of "Open Space - Whit is it?" the Joint t•ontmittee on (Open Apace Land - Final lteport, California Legisla- ture, February 1970, stated: The Lfnswer to the question, ";'hist is open space"" can only be given on a parcel by parcel basis. Pinpointing open space is a planning rather than a linguistic problem. The factors which influence the planning pro- cess will be weighed differently in each case. 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LL LL < pm0 u Li i�„ZJ Q Q U v1 U 9 m z V CL /•• A N a '• cl o � Q 06 06 W W Opo c c 2 W ..3 dO � as LL LL < pm0 u Li i�„ZJ Q Q U v1 U 9 V 101 4f, 31 -or-it r a *vi s Wo o pan 14— ;!. 0 0 cc `ihAA\ LA c Ct. zi V 101 4f, 31 -or-it r a *vi s Wo P w LL: _j "wow- 0 0 zi P w LL: _j "wow- I a b c d Environmental hazards alone should not determine precisely which land uses will onshore wave run-up that could cause significant damage to bayfront areas. This There are two basic types of settlement There is an inherent de t— specified in the General Plan. Such zrmination should be based on eco- phenomenon is relatively infrequent (run -ups of 10 to 15 feet once every 200 which can occur: uniform settlement (generally just called "settlement"), and differential in using risk as a basis fora 1 nd planning. However, land use plan ecumic, social and environmental con- sideration as well However, the pres- and 500 years respectively), and would most likely result from major settlement. Differential settle- ments, caused by variations in bay mud decisions can be made if the environs tal hazard risks associated with ence, disposition, and severity of environ- earthquakes far out in the Pacific Ocean thickness, weight of fills and improve- proposed development are identified mental hazards should play a major part in determining, general land use policies. The third category of earthquake hazard is ments, and uncontrolled or r fills P� quality generally present greater problems the risks compared with the risk alternative development proposals Some uses of land may be inappropriate for the level ground shaking. Vibration of the ground than settlement because different parts subside at different alternative development locations. of acceptable risk in certain caused by earthquakes t 1'k I rates, thereby causing environmental hazards areas. generated b faults outside the Planning buildings to tilt and crack, roadways to g y g undulate, and utilities to break. Settlement Area can cause 1. Types of i:nvironntGatal Hazards There are four types of environmental hazards which are of primary importance to the San Rafael Planning Area. These are seismic, geologic, flooding and fire. Each of these hazard types is discussed below, a. Seismic Hazards City of San Rafael is situated in a an which is affected by two major fault zones, and the Planning Area is traversed by a number of smaller faults, none of which is known to be active. The major fault zones are the San Andreas fault, located some eight to fourteen miles west of the City; and the Hayward fault, located some four to ten miles east of the City. Major historic earthquakes have occurred along each of these faults, and seismicity data and geologic information indicate that the San Andreas fault is capable of generating magnitude 8.3 earthquakes, whereas the Hayward fault is capable of generating magnitude 7.0 earthquakes. Based upon statistical analyses of past seismologic events (see Technical Ap- pendix), the following earthquakes have been calculated to occur sometime during a 150 year interval within 00 miles of San Rafael: * 1) Approximately one earthquake of magnitude 7.5 to 8.3 or greater 2. Four earthquakes of magnitude 6.5 to 7.5 3)'Twenty-six earthquakes of magnitude 5.5 to 6.5 4) One hundred sixty earthquakes of magnitude 4.5 to 5.5 *It should be recognized that the tabulated recurrence estimates may be incorrect by a tactor of 2 or more. Carthgm three ca sally induced water waves and ground shaking. Ground failure hazards, which can have a disastrous.effect on structures, roads and utilities, can in turn be subdivided into different categories such as surface faulting, soil liquefaction, differential settlement, lateral spreading and earth lurching. (Each of these ground failure problems is defined in the General Plan Technical Appendix under separate cover.) , severe structural of deeper muds (generally over 35 feet in damage. The detrimental effect of ground depth) can go on for tens and even shaking in a local area depends not only on hundreds of years. There are numerous the earthquake generated rock motions, examples of structure and utility damage but also on the induced ground failure due to settlement within the Planning potential, the soil modification and Area. amplification of the bedrock motions, and u . rasa ul:waa ay height bulk and structural t al ma ori s). A Potential Geo -Seismic Hazard Zones Map (see Map 3) has been prepared for the San Rafael Planning Area which combines all of the seismic hazards described above (except ground shaking), and rates them in terms of (1) the possibliity of the hazard occurring, and (2) the subsequent damage if the hazard does occur. (See the Technical Appendix for definitions of the four risk zones used in Map 3.) b. Geologic (Hazards One of the major geologic hazards in the San Rafael Planning Area is landslides. Quite naturally this type of hazard occurs mostly on the hillsides. The stability of natural slopes is largely controlled by a number of variables including geologic structure, bedrock properties, type and depth of soil and weathered rock, steepness of slope, amount and intensity of rainfall, drainage, erosion, vegetative cover, seismic activity and time. Instabil- ity of slopes is manifested by surface failure resulting in mass Movement of soils and rock downslope. Damage to structures ranges from slight to total destruction. Landslides can be triggered in potentially um;table areas by various development induced activities including improper grading, removal of vegetation cover, and alteration of surface and subsurface water regimen Some categories of ground failure hazardf. can occur anywhere in the Planning Arei depending on soil and groundwater conditions, and, in the case of San Rafael, are more likely to occur as the result of mayor movements along one of the two manor fault zones located several miles from the City. The second category of earthquake hazard is the seismically induced water waves or "tidal waves." The only seismic wave of probable significance, to San Rafael is called a tsunami, which produces an The many known landslides indicate that significant portions of the Planning Area are potentially unstable. These general areas are shown on the Relative Stability of Natural Slopes Map, see Map 4. See the Technical Appendix for definitions of the four risk zones used in Map 4. The second type of major geologic hazard in the San Rafael area is settlement, which occurs mostly on the flat former baylands within the Planning Area. Settlement is a problem which results from the weakness and compressibility of the bay mud. When fills and structures are placed on the mud, the added weight creates a compression force which squeezes water out and results in surface settlements. The amount of settlement is determined by the weight of fill, the depth of the bay mud and previous loadings that have been imposed on the mud. Additional factors affecting settle- ment are the engineering procedures used in placing the fill. .. " - . m ,Wwa... - .mac_..- - a..x __ C. Flooding Hazards Flooding is a significant problem largely confined to the areas east of Highway 101. In developed areas along Gallinas Creek, Santa Venetia for example, the ground water level is so high that there is litt le potential ground reservoir capacity to accommodate heavy precipitation. Fur- ther south, severe flooding occurs in the developed areas in the vicinity of the San Rafael Canal when periods of heavy rainfall coincide with the high tides and high winds, and is due to the Canal's incapacity to accommodate the surfa,-e runoff of its drainage basin. This problem has wersenad over the years as urbaniza- tion has eliminated the former natural flood ponds, and as hard -paved surfaces have increased the rate of runoff so that water is very quickly shed into storm drains. The narrow San Rafael Caral, under adverse tide and weather condi tions, simply cannot pass all the water that once spread across the acres of flood ponds. As a consequence flood waters reached record highs in the winter of 1972-73. d. Fire Hazard The areas posing the greatest risk of fire hazard are the San Rafael hills and Lucas Valley. The chief cause of fires in these areas is man's carelessness. Although these areas are privately owned, tres- passing is widespread. If these lands are acquired for public open space, the fire hazard problem will undoubtedly worsen as a result of increased public use unless an adequate fire protection and fuel reduction program is developed. In Lucas Valley, easy access to the valley slopes via Lucas Valley Road and ridgeline fire roads has so far helped to prevent a major conflagration, but the residential develop- ment flanking the slopes is vulnerable. The fire problem in the San Rafael hills is much more serious ;.:ecause the existing fire trails follow only the ridges, and these are difficult to negotiate by fire -fighting equipment The problem has been compounded by devi;opment on the lower slopes, in canyons served by long cul-de-sac roads Direct access to these areas from the ride fire roads is impossible, and additional fire road construction is not feasible because of the steep slopes and unstable ground con- ditions of the San Rafael hills. Additional development in canyons and remote areas of this type would only increase the fire hazard risk. 2. The Concept of Balanced Risk There are three basic risks to man and the environment from these environmental hazards: the risk to life, the risk to property and to the natural physical environment, and the risk to social and economic stability Public agencies have a clear mandate - in the form of the mandatory Seismic and Safety Elements -- to protect the public from injury and death. and a dermite role in preventing property dam age, especially in the case of public buildings where risk should be reduced as much as possible. 3. Land Use and Site Invesficgallor. IMe level of geotechnical investigal prior to approval and cdnstruction of development in the various hazard zo is outlined on Table 4. Both maps, Rela Stability of Natural Slopes Map (Plat, and Potential Geo -Seismic Hazard Zc Map (Plate 3) must be reviewed in orde determine the highest hazard zone fc particular area. For example, Han are shown as Zone 1 on the Relative Stabilit Natural Slopes Map and Zone 3 on Geo -Seismic Hazard Zones Map, the le of investigation should be for Zone 3. Preliminary geotechnical, analysis a indicate that the site is stable and a lov level of investigation is required conversely, the area is more+unstable ti anticipated and more detailed and speci studies are required. Where the C determines that there is a question 2s the necessary degree of investigation. special Geutechnical Review Board sh be convened to establish the requir extent of investigation and to advise on t specific hazard level for .,the propei being considered.4See Appendix) In making decisions as to the acceptal level of risk and investigation requii ments, City officials will want to revii the Potential Geo -Seismic Hazards Zon Map and the Relative Stability of Natur Slopes Map, as well as the risk zoi definitions contained in the Technic Appendix. It should be kept in mind th these maps were prepared from dal developed on a community -wide scale ai are therefore generalized and.notsli specific; i.e., there are likely to h exceptions, both better and worse cdnd tions, within each of the risk zones show on these maps. The property owner c developer should be afforded the oppoi tunity of demonstrating through on -sit investigations where these exceptions ma lie. In addition, it is recommended tha specific consideration be given to th following principles: a That the level of acceptable risk b reasonable in terms of the cost o achieving it. The cost may either be direc (potential damage to property or loss o life), or indirect (removing hazardous lands from the tax rolls and placing their in npen space). The endeavor to minimize rv,k may result in higher costs. At some point the public is no longer willing to pa) what it would cost to reduce the risk further and the risk is considered acceptable. b. That there be an explicit differe"n- tiation between voluntary risk and involuntary risk. Because -use of certain public buildings is not voluntary, there is no choice available to the individual whether or not to submit to a given degree of risk. Thus the level of acceptable risk associated with land or building uses of involuntary public occupancy should be quite low. C. That there be an explicit differen- tiation between wiknown risks and known risks. It is the proper function of public agencies to provide information that will make the public fully aware of the risks associated with all known environmentril hazards. This can be accomplished with the use of environmental hazard maps, public hearings, adoption of high risk development zones, etc. d. That the public not be exposed to unnecessary risk (in terms of alternate uses proposed for a given site, for example) without a corresponding benefit. a P. That the balancing of risk i.ut be limited to future planning decisions but also include the evaluation of risks associated with existing land uses and .Aruct:ures. The acceptable risk level must be commensurate with the benefits -ued and to the related cost of ...c.vink those benefits. The City's evaluation of environmental liiizards and risk levels must be based on the technical judgment of appropriate professionals. As experience and new knowledge about geologic and seismic events and the response of man-made structures are gained, and as new data in the Planning area become available, the acceptable risk levels and investigation standards may have to be adjusted accordingly. b B. POLICIES The following policies underlie and shape the character and orientation of the Seismic Safety and 'lafety elements. Policy 1: Evaluate carefully the potential geologic, seismic, flooding and fire hazards before approving public or private development proposals. Policy Z: Develop procedures for maintaining -and disseminating information to the public regarding environmental hazards. Policy 3: Prepare programs of action for use in the event of natural disaster, and attempt to reduce the extent of damage to the public from the recurrence of such disaster. FABLE 4 SITE INVESTIGATION REQUIREMENTS IN RELATION TO LACI® USE Current building code require- _ents must be met, as well as those of other existing State and local ordinances and regulations. Also, a preliminary geologic and soil engineering investigation should be made tq determine whether or not the specific site is in the appropriate geo-seismic hazard zone. B. In addition to the above, sufficient geologic, seismic, soil and structural engineering analysis must be available to determine structural suitability to the site in terms of proposed occupancy and intended use. It may be necessary to extend the investigations beyond the immediate confines of the proposed site in order to obtain the necessary data. Where faults are present, special investigations should be made to determine if setback requirements are necessary and, if so, the amount required C. in addition to the above, there must be 1. Subsurface borings to evaluate liquefaction potential 2. Foundation investigations to evaluate and estimate differential settlement potential. 3. De- tailed fault and landslide investigations. D. In addition to the above, analysis must be made of dynamic ground and structural response such as a detailed analysis of any structures. HAZARD ZONES (MAPS 3 and 4 ) High Occupancy and Critical Use Including: -Hospitals and Related Care Centers -Schoo'•s -Penal Institutions -Auditoriums, Churches, and Theatres -Fire and Police Stations -Retail Mores and Personal Services -P; ofessional Offices -Residential Development if - more than 0 units or if 3 stories or greater Hotels, Motels & Mobile Home Parks and Apartments). -Gasoline Service Stations .Major Utilities -Communication Facilities -Levees Low Occupancy Including: -Residential Development if : E units -acre or less -or if less than 3 stories. (single family, duplex, townhouse, row house -cluster) -Small Commercial (1 story) -Club Houses -Small Restaurants (max. of 30 seats) Manufacturing - High Occupancy Including: -Light and Heavy Manufacturing or Assembling Manufacturing Low Occupancy Including: -Warehouses Distribution and Storage Areas -Wharves and Docks 4 3 2 D_ D C I B D C 1 B I A D 1 C B I A C I B I A I A Open Space Including: -Parks and Agricultural Land B A A -Golf Courses -Marinas *Dangerous or unspecified uses shall be evaluated and assignee catagories of investigation on an individual bogie. • . t • ):Axe ,..... A C C. IMPLEMENTATION The best way to reduce the risk of environmental hazards in the long term is to begin regulating new development effectively. Because the San Rafael Planning Area is experiencing strong development pressures, the thrust of a risk reduction action program should be toward better land use decision-making. This requires well developed environ- mental data in terms of seismic and geologic hazards. However, most existing construction will be little affected by this type of program. In recently developed areas ' of high risk, the only practical means of lowering the risk may be adequate disaster programs and better evacuation routes. In the older developed areas, redevelopment and structural hazard abatement, where necessary, may be the most practical means of reducing risk. Acceptable Risk The City should continue to refine the locally acceptable levels of environmental risk (see Table 4). Such levels can guide the City in judging specific applications for land uses within various risk zones, and establish the standards for investigations within different risk zones for various land uses or structures. Thus, for example, if overriding public considerations required that a fire house be built in a Zone 4 seismic risk area, then a very intensive "D" classification investigation would be expected to ensure that the level of risk was reduced as much as possible. F avironmental Hazards Maps The Potential Geo -Seismic Hazards Zones Map and the Relative Stability of Natural Slopes Map should be maintained and continually updated as new data becomes available. These maps should be on public display at City Hall for general reference use Data Program The City's goal shall be the promotion of a continuing program of data collection on environmental hazards. Priorities for obtaining such data should be influenced by the potential magnitude of the hazards and potential losses as they relate to population density and development concentration. The Public Works Depart- ment's responsibility shall be the main- tenance of copies of ail soil reports, and engineering and geologic investigations conducted within the Planning Area by or for public and private entities. The geologic and seismic data maps developed as part of the General Plan Program should be up -dated as new information becomes available. Property owners and developers would he given the opportunity to demonstrate through on-site investiga- tions whether or not the level of risk described on the environmental hazards maps actually exists on individual sites. The Potential Ground Response During Major Earthquakes Map can be used by structural engineers as a guide Storm Drainage Plan Recognizing the flooding problems of the San Rafael Canal, the City should continue to explore methods of disposing of storm surface runoff, and should extend its storm drainage plan as necessary. Fire Hazard Reduction To reduce the existing and potential fire hazards in the open space areas, particularly Lucas Valley and the San Rafael hills, the City should: a) Limit future development of long dead-end and one-way access roads. b) Reduce unnecessary fuel where possible and compatible with environ- mental appearance (selective vegeta- tion types), and evaluate the possibility of creating fuel breaks which are harmonious with the environment around populated areas. c) Inform the public of all known high fire hazard areas and discourage the location of land uses and building types that would increase the hazard of fire. I d Disaster Preparedness Program The City has adopted an Emergency Pla delineating the planning basis, organizz tion, and task assignments for disaste situations. The Emergency Plan should b disseminated immediately to all involve public personnel for review and revisioi and, in the future, should periodically t reviewed and amended as necessary. Sue review should include representative from each department of local gover- ment with an emergency mission, ar representatives from each nongovernmei tal group to which a mission may 1: assigned. The Emergency Plan effectively addres es the disaster situation problen relevant to governmental and relate non-governmental agencies. In addition, is recommended that the City prepare Disaster Plan of Public Action for pub] dissemination, , nd for distribution to a citizen groups and neighborhood orgar zations which could be involved in cjv disasters. Information should betincludi regarding what actions the private citty and citizens' groups can and shotdd tats where emergency facilities are locate and what responsibilities have bei assigned to those staff and servit agencies delineated in the Emergent Plan Prompt and effective action in a dila t, situation is facilitated by plannin Reaction times and coordination a• improved if such disaster planning known by the heads of the local operatic departments, their forces, and the publi To this end, the City should - a) Initiate an orientation and train++ program for all C: ty employees. 7 become proficient, staff and servii section chiefs should practive eme gency operations through dry -rt command -post tvp,,? exercise, sen nars, and workshops. b) Initiate a public orientation progra! for the Planning Area. This progra should acquaint the public with tli Disaster Plan of Public Action an should include public meetings, schoi instruction, and rehearsals of actions t be taken during disaster situations. Structural Hazards Abatement Progran The City should attempt to develop triter for evaluating existing structural bazar. and for abating these hazards in tl Planning Area. Priority for identifyii structural hazards should be given to tho parts of the community located in tl highest risk zones, and particularly tha areas where there are large concentr tions of people. D. BA VLANDS EVA LUA TION AREAS (See Map 5) Particular attention to hazard conditio should be given to land areas adjacent the Bay and water channels. All of the areas are underlain by bay mud therefore geologic and seismic hazar are important considerations m evaluate the future use of these areas. The SI; Baylands Evaluation Areas discuss+ below are: 1 Nar„etERN SAYLANDs ,I -5AN PrjU40 titJC9 L/NC ANO 1449SteLANO $A tv VcUno A•UAI.LIIMS effCCK F4Ar4ANa i.SANRAFAEL CANAL L 5,404 ARFAEL 0AYLAN0.5 1. Northern Baylonds In the future, the area east of the rallroi tracks and north of the John F. Mclnn Park should remain essentially in agrici tural open space or very low intensity us such as a golf course or fair grounds. Tb area is underlain by bay muds varying thickness to over 60 feet. A subsurfai engineering report,* prepared for tl 9 a .ounty's John F. McInnis Park im- nediately to the south, draws a conclusion hat this area is not ecmnnm:rally suitable Cor da eiopnient in the near future, due to 'weLler:is of frllit"g and settlement ^tcporc on Geological, Soil and Founda- ,n. Hydrological, Sedimentation, and Horticultural Aspects of the North ?;ayfront Park, San Rafael, Marin County, Arthur T. Knutson..1ime 30. 1973. knother concern in this area is the 'eiatively high level of seismic risk -or centrated along the drainage channels incl. bay shoreline. Structures should not )e built in these areas without high levels if investigations, roasts and utilities which !rocs this area could be severed in an !arthquahe, thus culAting oaf enutrg(nicy icce:is and e6Tcss. b Adjacent lands are developed in a hodgepodge of uses ranging from retail shopping centers and car dealers to drive-in food establishments and apart- ments. Many of these uses do not relate to the water, and many in fact turn their back on it. A long-term goal should be that of making the Canal a predominantly water -oriented recreational or open space use area. Land with Canal access is to be evaluated for rmblic purchase as it becomes available and as the useful life of structures ends. This long-term goal, . as well as a contingency program of action following a possible earthquake, should be given :special study as part of the City's redevelopment program. t_'• 3®n 0�6®o( E NDS hr, 14;.r,q as ^.:nn Volt], t+.,: fish ane: k:; I- i i c• n r " . n rc Crptical for ».t. flats i5 as!;t"Sial. l,n7 re,Iu:t:,r, n•!. !y rr '4 a1'alia'llc tC Hsi, ..n.d vlSdilfe but alsn rca ass t`.',_ •.a %;Mcr for V.P. ::'.i!,trn.r; 4*tnsfinali a an. L::c a`,atc." of of t'i.�9'�LA located on the east side of Route 17, is t�raifrtxipn ltS`A# °o3gazgest largely undevelfsgaed, although there is a r �^ S!k., �ttir a�Gzi!!(:llk>E Eri.;he(y'i$tfag f,rw'eil, andi(!atterillt; f?? rriiXeti industrial and 1:,ttS('by; tho railroad voinrriercial uses. ?r: the northern and of :iii it '_ l!.!.`'"C: S 'x`,• dvr'�' Fifa 7T'. h l'C: Siff: iS t!if'. 'arra lit a..a:::t f _tit=.1 Vii!`::tilt, a few1Oc ll to ()i:(!r f'.i) Stret?,s have h_?!!;" !)n;0; and titin[": -'.titin[": tairzl .S ..JI .+ bi' e. e!' e.?,ria? pilar ^, su-t Sledl alt tai. g. i tit) rdo% 'lopmeia has J Ft •y }En (.r a,,.i :i" ,t'Fd! o r ill;..-. ,[) . .'CYS i;p!af•' :,r,„".�: •(I'�:}. i:2 LiI'e::.. ..ills iTi .:1i _1 illili'(' ..:¢ T , r E._ .. t_ t, r[ w1 has (.::)iIl i f)f fiS} itis is}n-'(°4b tri being ...:l !i![+ r' a.-oas itJ of ell ;; Z•i?, .j'7 ,I tt r; f r t� ": fid,':i''..'.' Ziac'. ri ..r':l.ci •,r, }i. 6� i'!(' till:'}arls .� r. "n,•`, c!mvr , of i .i..(a ... d; t.!'.� i..•,:li1i `y'. ':i";...`.i „.i.,r, },:4711 S .:': cif'. �`� Cl. "yp„'tii 'v1•r'i;4!lT ,.'. iJ Z� C{O>1 `i{ :( i "ke ..._.. s., r.!i.'';, 5'i ..:), ii-. _r. 1, �TY-: +i�.i�•v i:.1 t. :.'.a -!: L. y �.. • ... •;,.' ��.1 iii•}.'l.,•=:ri'e^:.iz'.I';?. Cvirai +, tire Canal !.5 .a in.,ior ,31'o,a'E_'t?1 !;lee. 1") w a:1',i .tieiTll''liI ,ltiti4rlT a'�-ltriE�? l � if r 5.:. � 1''f '.•t: .L1L'Ceis tf) p!lCi `n', vw- 1:0 ^:?'.aal a:ha "all-, ;;'i arliammt f) !he. Canal are b.ny .... 7: p*, al Zl); •:.i E:i: °.f! l)r(?'ss III':c' faLsm t'illtt'2il `"h� ,. °: x. .;:L i�: •rci fl::>. ri I?sI!.l)l.'at'!r.`te:.< 5iirTi! �e A'1....:!: 1)t t:.;.,.� fSaakr• l;a ;l.:a Ltri`l1Zof C'h ? al. ri. }.{:,. {'>:;}.'i.:l::J.ir`a_ ;:.;,�trlt�f'•!i, t!'4.;,._.!1;:{::7}: is:cr ol; , n.c.c 1;::i the ?x1e^! :af 't would i)t against €'nil (i.. �.;'.ii:i;r jT.ii lit•;ca,; 7.�!s' i. tj a°i (lt;'. �;:Sri',:; �:;', x; ,lir<F, t?:aib h�.als..., li CIF the 1:•.>ei?ts ars inadequate and -'r,i31{1 ','_e o.il;ly, ='l'f n 4f st?c r,l;iy nx.'•i'i ;fir:nor.'., W improve. Sufficiently to SL'rt 1 't+')J1!1 s;visor.',- Hillis?ing. EV-_-'li placing, ±: %af,i jiii )�rlt stT'aictiar;;sale pit-"-: ew3k to ? ID6 flay be. i=fs , squat€! 1) u.- us ^ !f f e...".;,•(> ,: i; , k, :_!;?}a,_,1 ,,}; by t!dy mud's 4,°,.';�t'. _`.t e•K; `•n i is J "of"t rjf:'ep. Any fill ^i 4•i illi:, .:,c.., kc ,ii 5rAt)'ect to Of 1 0 `= !1?tf'0 (t) the rot)': ., c'' ...:e=',' .,`; ;? ....P{-'rr'r:•.. I)if- 5.:,'(";4ii:, s•:=?`....�f=-._., �!i'e�.._::' .,.:)s{•ternes r.� i.,, ,r:i ,. - - . ?�' �'�i'. `•,>., f:Z i'd'lvate ,re? -o -r Ei° tIT:' »!.`a f ..^:irt11- the 1:.% -nr to s!.':ia the ,ji:E:';:'.s(".._ r.. .:i{ ;:r .e' £1:i.; r••,!'.ltr• E?)tlre e:,!:a} S?•a:'.y'C f tq i17L [;i''. and 41 t iSTS alum; the :.;i;,e,,; is;' • i;:, w;t.:-2 'es ' Saa R arae) iiay ': tiii. i ., f .:iibuard of the d!?ie). l )T'?_., -,.•. : '!'1i'.nlsi!ke t?;!!dV F qti, iaOwn anti •:)feral sli>,..,:.i4r:j ir ,r ;l:�h large areas of)-Zli -Tin?,e %�hile it may be pi Si b.e to m. i1, i c ltE' 10 me der ree the t,,, the lagoon by Siding. it is 'f.:r'-i!,1 '1y that BCDC 'San v rancicco Bay ):'c_ :vrvati ::l and Develop- mcrit CominI will rx- rmit afldtitional i;11i:i; ei San Rafael Ba;; mj!board of the `crf�, i1 :-: tiu_,1 i3s tlTffirtdt to -';tr'?�,'r. +.?3' !;• ,•T,l!: n re!;iitrt of the e`. rq!!t ewh`(1 hN file ,.'iS t".`. ..:i:'; ri,i`C. 'tTZ.:{! ge>tElc:•�iC•nt t)i {, i.IlcCiS r.': tai; : "f'ik. `:;!?S5!S!li,:; !i'�ltle• i)S _-w,.s prio'i tC! nr, parli, iliarly those where oris: portion of a building i;uttEes niore than another Porti ri (i.e., t:ii1'fnrent;a1 S;: Hemeat), can cause ;;:se w;urable strains in a i;uillling. These cilrains may result in stresses that sLii),fa.itially Weaken a Structure. ...It i:ecuriii F!1)Vfft;r�• that Sill['+? ntlal settle- C d ments can (and normally do) weaken a ment, but also without precluding housing building to the extent that it will perform opportunities for any segment of the poorly in an earthquake." * population. *Steinbrugge, Karl V., Seismic Risk to Buildings and Structures on filled lands in San Francisco Bay. California Division of Mines and Geology, Special Report 97, 1969, p. 109. When more detailed plans are developed for this area, they should be based upon thorough on-site geologic and seismic investigations, and should treat not only the usual land use and circulation questions, but should also deal with structural types, weights, sizes and occupancy levels. Moreover, as one of the prime entryways into San Rafael and an important waterfront area, such plans should make ample provision for public water -oriented open space and recreation uses, and should set forth very stringent design and landscaping standards, par- ticularly along the freeway. Careful attention should be given to the possibility of transferring development rights among land owners, and to the need for deed restrictions and other public conditions to assure long-term adherence to planning goals. Along the frontage on the Ray, the potential exists for a more dramatic, and perhaps a more beneficial use of this site, which would be to create a magnificent new water -oriented public recreation and open space resource for the community Waterfront promenades, playing fields, possibly a boat harbor and other open uses would minimize the risk from seismic hazards and differential settlement, and would establish, at last, San Rafael's rightful relationship to the Bay and its shoreline. This area could be used to enhance San Rafael's character as a fascinating place 'which hfis (raptured the full public benefit from its physiogra_lhic asset -- its ridgil#nes and sharrlirf2: Laurence Rockfeller's Task. Force Report" indicates that much of the recent urban growth experienced in the United States has resulted from people's fleeing from congested older cities, even from newer suburbs, into the mountains and deserts. Such mobility of population has had a major influence on San Rafael's growth. *Tbe Use of land: A Citizens, Policy Guide to Urban Growth ed. by William K. Reilly, Thomas Y. Crowell Co., N.Y. 1t is now evident that there is no longer any thing to be gained from flight. The prime need is to improve the living environment wherever we are. To promote the establishment of better and more stable comininity patterns, land use policies and ordinances must he changed. San Rafael has been and wishes to continue to be a very desirable residential area. However, continuing rapid inflation in land prices rcssults in developers' proposing high-flensity apartment instead of single.family development The pro- blem thus created ne=cessitates new and innovative community development pat- terns to assure compatibility of high density projects with existing single family areas, By managed growth. San Rafael can avo;d the deterioration and devaluation of reitgl borhood s resulting from overcrowding and increased traffic congec;tion. land use regulations and development criteria must allow in- erea,w- f density wAy in such a way rs to pae ,crve the sought-after c);rwre:ti€"' of ei;iAing areas. W- r�;by assuring the cont'lnu+:d del:ir"ab'dit( of !%at 11�u"USP IG' Uu'4tju THIS RE&D' ItE RITUAL ER11MONFFENT A. I NTP®DUCUON cl-1,ipier identifies the nature of San ltafael', llnusing and residential develop- ment needs, and recommends methods for dealing with them. Although the needs are irterrclated, it is necessary to con- id(:r :-:il_h ens' as an independent activity requiring a distinctly different apprnach. ]lousing markets and housing problems are not strictly restricted to City twundaries: many solutions, nevertheless, inwit, lse implemented at the municipal le%el. In addAwn, the developmen! of t-,resenEly op^s7 areas for neer residences, G ante tlet' rt'1'r_fr•'1 ttlti'i?i and 11113 lifif' a!,mi of r'Xi:+tEl)1.; re! iv?i-ntmi vvigh!wr::r.'4yl:: arc fl)i1}pr rrlt!rlif t? t !}!i(�i i'tillitrtt�•rC'q ring if -m vativi! pruce.(lures for rt'i..tn8glne, flli� city's rrr-,idential arol>tith Conventional lot -by -lot zoning controls, yard setbacks and land coverage are inadequate to assure protection for foreseeable urban growth Development must be managed withoutdestroying neighborhoods or the natural environ- 1. Background and Summitry off ,.;v s The :tiny of ;i nt} llnfael's Ein•t;:iM ar!d re:,idential living en-. i ,;lzlrr.?: l `4 twon conducteii in tv;o ph -i r F'im', th' City's existing and its rel' t v, 1'— it' ':1 in the larger hensing rcarke t wa ^ Recommended cii.ywide huinsiolpi and an initiral list of liI 'in rt• for Improving holl5ing 1:n t?t: S'it'e'.','.`"`' Area, we -r(, de,-,ns�,d. Ae second par! of the st-tviy' fit i€?!.,ci tier (Cita; Sniff) 8tl Zl1';f•'17t�!Triio•ust .:s}"r:'ii;3, 'fir!:.es.i.?>: i/i%.. Cii5Li:11'!t'ii:i.{j iiL'.y c3 �.?g'iT�. {''P t.]•.'SI' i!')h"i. res -id ei:rt?ill 13'-:nLT ('li`,•'i'!)'l ..0 f 71?"?. 1:1r m.rary rrnsjdr-ra.'._n71 pr ..t:r_':nlior of ant -1 ino.nal =.a? 7 irl! t7 :;:. 1)t).i.ic i.c; ;_ „t ,r't Clt'tnii tT?fla:° i.l`a };.. a) ',.rS.i";.i', i..?.:. -...•r: :+, tt«li.is)t; 't'4•ti•{' a!!r'. `l'f'E!E,it-cs While cue=iprise the of tile Planni}.k? hilt_` other t?:... 6'it)S✓3rTt.rc111? Ir'•�.e[a;,:%^,;4?iA lt.r}t:':'k?..:Y'f:`f? i:i rilrtitr-i1.SlZt ;,tf'>.;,s'j.ttrk'F 1i:ti?:!`R :(i«: .ii; d('.adv, This to Crintin 1:�. •:.�::........ +. » — ..,.: Y'L-c: a_;: - - Aye'.-- _ . `F' -'-S baa+•-•:.,+-». .•- ..--..> .- •„�-- -.,.. .7 .. '-" .m!Pf • . n..C. �w , _ y'-At4 '.,'-•.'p..y •' �au.w>w. � 1 T:w. ,�. -n T _, T 4.. w ....,. . • w 1 Ni.• :.�w,, 1:: _y 6-n Che (county's agricultural preserve The San Rafael Bay shoreline is an open ;oning. whi(:h covers about. half i.he area, space area which has been completely should be maintained, and land owners :altered from its former marshland state vho Have not signed i;'rilliannson Act throug�b the processes of dit:inn and filling _znntracts should bt enco7arat eel to do so. wNch are still in progress This area, 5,1 N PL OFie fs ice ...s %-.;,1;:Z :�:., -ib C-1:1 Fra. visa .. ilit.r p L+.i.,ira.}tttt, l':cr .., r' '• and Vq! I fi: ..;r and :<altI T!1(• (ii, ;% l cir4r,li i!' ..^,i T.CCII'r, r 41 r :y D AILz,rfct.+ of°u•t :• T!,t. r fnp'i fr,r fi' ..- fourcc :f and 0 :,I r,,' .^t!."Il ly 1' ' C"', f i ,+: ,...:1 i;i rJ S i fc !!:a `Uu:' Su; hr, 14;.r,q as ^.:nn Volt], t+.,: fish ane: k:; I- i i c• n r " . n rc Crptical for ».t. flats i5 as!;t"Sial. l,n7 re,Iu:t:,r, n•!. !y rr '4 a1'alia'llc tC Hsi, ..n.d vlSdilfe but alsn rca ass t`.',_ •.a %;Mcr for V.P. ::'.i!,trn.r; 4*tnsfinali a an. L::c a`,atc." of of t'i.�9'�LA located on the east side of Route 17, is t�raifrtxipn ltS`A# °o3gazgest largely undevelfsgaed, although there is a r �^ S!k., �ttir a�Gzi!!(:llk>E Eri.;he(y'i$tfag f,rw'eil, andi(!atterillt; f?? rriiXeti industrial and 1:,ttS('by; tho railroad voinrriercial uses. ?r: the northern and of :iii it '_ l!.!.`'"C: S 'x`,• dvr'�' Fifa 7T'. h l'C: Siff: iS t!if'. 'arra lit a..a:::t f _tit=.1 Vii!`::tilt, a few1Oc ll to ()i:(!r f'.i) Stret?,s have h_?!!;" !)n;0; and titin[": -'.titin[": tairzl .S ..JI .+ bi' e. e!' e.?,ria? pilar ^, su-t Sledl alt tai. g. i tit) rdo% 'lopmeia has J Ft •y }En (.r a,,.i :i" ,t'Fd! o r ill;..-. ,[) . .'CYS i;p!af•' :,r,„".�: •(I'�:}. i:2 LiI'e::.. ..ills iTi .:1i _1 illili'(' ..:¢ T , r E._ .. t_ t, r[ w1 has (.::)iIl i f)f fiS} itis is}n-'(°4b tri being ...:l !i![+ r' a.-oas itJ of ell ;; Z•i?, .j'7 ,I tt r; f r t� ": fid,':i''..'.' Ziac'. ri ..r':l.ci •,r, }i. 6� i'!(' till:'}arls .� r. "n,•`, c!mvr , of i .i..(a ... d; t.!'.� i..•,:li1i `y'. ':i";...`.i „.i.,r, },:4711 S .:': cif'. �`� Cl. "yp„'tii 'v1•r'i;4!lT ,.'. iJ Z� C{O>1 `i{ :( i "ke ..._.. s., r.!i.'';, 5'i ..:), ii-. _r. 1, �TY-: +i�.i�•v i:.1 t. :.'.a -!: L. y �.. • ... •;,.' ��.1 iii•}.'l.,•=:ri'e^:.iz'.I';?. Cvirai +, tire Canal !.5 .a in.,ior ,31'o,a'E_'t?1 !;lee. 1") w a:1',i .tieiTll''liI ,ltiti4rlT a'�-ltriE�? l � if r 5.:. � 1''f '.•t: .L1L'Ceis tf) p!lCi `n', vw- 1:0 ^:?'.aal a:ha "all-, ;;'i arliammt f) !he. Canal are b.ny .... 7: p*, al Zl); •:.i E:i: °.f! l)r(?'ss III':c' faLsm t'illtt'2il `"h� ,. °: x. .;:L i�: •rci fl::>. ri I?sI!.l)l.'at'!r.`te:.< 5iirTi! �e A'1....:!: 1)t t:.;.,.� fSaakr• l;a ;l.:a Ltri`l1Zof C'h ? al. ri. }.{:,. {'>:;}.'i.:l::J.ir`a_ ;:.;,�trlt�f'•!i, t!'4.;,._.!1;:{::7}: is:cr ol; , n.c.c 1;::i the ?x1e^! :af 't would i)t against €'nil (i.. �.;'.ii:i;r jT.ii lit•;ca,; 7.�!s' i. tj a°i (lt;'. �;:Sri',:; �:;', x; ,lir<F, t?:aib h�.als..., li CIF the 1:•.>ei?ts ars inadequate and -'r,i31{1 ','_e o.il;ly, ='l'f n 4f st?c r,l;iy nx.'•i'i ;fir:nor.'., W improve. Sufficiently to SL'rt 1 't+')J1!1 s;visor.',- Hillis?ing. EV-_-'li placing, ±: %af,i jiii )�rlt stT'aictiar;;sale pit-"-: ew3k to ? ID6 flay be. i=fs , squat€! 1) u.- us ^ !f f e...".;,•(> ,: i; , k, :_!;?}a,_,1 ,,}; by t!dy mud's 4,°,.';�t'. _`.t e•K; `•n i is J "of"t rjf:'ep. Any fill ^i 4•i illi:, .:,c.., kc ,ii 5rAt)'ect to Of 1 0 `= !1?tf'0 (t) the rot)': ., c'' ...:e=',' .,`; ;? ....P{-'rr'r:•.. I)if- 5.:,'(";4ii:, s•:=?`....�f=-._., �!i'e�.._::' .,.:)s{•ternes r.� i.,, ,r:i ,. - - . ?�' �'�i'. `•,>., f:Z i'd'lvate ,re? -o -r Ei° tIT:' »!.`a f ..^:irt11- the 1:.% -nr to s!.':ia the ,ji:E:';:'.s(".._ r.. .:i{ ;:r .e' £1:i.; r••,!'.ltr• E?)tlre e:,!:a} S?•a:'.y'C f tq i17L [;i''. and 41 t iSTS alum; the :.;i;,e,,; is;' • i;:, w;t.:-2 'es ' Saa R arae) iiay ': tiii. i ., f .:iibuard of the d!?ie). l )T'?_., -,.•. : '!'1i'.nlsi!ke t?;!!dV F qti, iaOwn anti •:)feral sli>,..,:.i4r:j ir ,r ;l:�h large areas of)-Zli -Tin?,e %�hile it may be pi Si b.e to m. i1, i c ltE' 10 me der ree the t,,, the lagoon by Siding. it is 'f.:r'-i!,1 '1y that BCDC 'San v rancicco Bay ):'c_ :vrvati ::l and Develop- mcrit CominI will rx- rmit afldtitional i;11i:i; ei San Rafael Ba;; mj!board of the `crf�, i1 :-: tiu_,1 i3s tlTffirtdt to -';tr'?�,'r. +.?3' !;• ,•T,l!: n re!;iitrt of the e`. rq!!t ewh`(1 hN file ,.'iS t".`. ..:i:'; ri,i`C. 'tTZ.:{! ge>tElc:•�iC•nt t)i {, i.IlcCiS r.': tai; : "f'ik. `:;!?S5!S!li,:; !i'�ltle• i)S _-w,.s prio'i tC! nr, parli, iliarly those where oris: portion of a building i;uttEes niore than another Porti ri (i.e., t:ii1'fnrent;a1 S;: Hemeat), can cause ;;:se w;urable strains in a i;uillling. These cilrains may result in stresses that sLii),fa.itially Weaken a Structure. ...It i:ecuriii F!1)Vfft;r�• that Sill['+? ntlal settle- C d ments can (and normally do) weaken a ment, but also without precluding housing building to the extent that it will perform opportunities for any segment of the poorly in an earthquake." * population. *Steinbrugge, Karl V., Seismic Risk to Buildings and Structures on filled lands in San Francisco Bay. California Division of Mines and Geology, Special Report 97, 1969, p. 109. When more detailed plans are developed for this area, they should be based upon thorough on-site geologic and seismic investigations, and should treat not only the usual land use and circulation questions, but should also deal with structural types, weights, sizes and occupancy levels. Moreover, as one of the prime entryways into San Rafael and an important waterfront area, such plans should make ample provision for public water -oriented open space and recreation uses, and should set forth very stringent design and landscaping standards, par- ticularly along the freeway. Careful attention should be given to the possibility of transferring development rights among land owners, and to the need for deed restrictions and other public conditions to assure long-term adherence to planning goals. Along the frontage on the Ray, the potential exists for a more dramatic, and perhaps a more beneficial use of this site, which would be to create a magnificent new water -oriented public recreation and open space resource for the community Waterfront promenades, playing fields, possibly a boat harbor and other open uses would minimize the risk from seismic hazards and differential settlement, and would establish, at last, San Rafael's rightful relationship to the Bay and its shoreline. This area could be used to enhance San Rafael's character as a fascinating place 'which hfis (raptured the full public benefit from its physiogra_lhic asset -- its ridgil#nes and sharrlirf2: Laurence Rockfeller's Task. Force Report" indicates that much of the recent urban growth experienced in the United States has resulted from people's fleeing from congested older cities, even from newer suburbs, into the mountains and deserts. Such mobility of population has had a major influence on San Rafael's growth. *Tbe Use of land: A Citizens, Policy Guide to Urban Growth ed. by William K. Reilly, Thomas Y. Crowell Co., N.Y. 1t is now evident that there is no longer any thing to be gained from flight. The prime need is to improve the living environment wherever we are. To promote the establishment of better and more stable comininity patterns, land use policies and ordinances must he changed. San Rafael has been and wishes to continue to be a very desirable residential area. However, continuing rapid inflation in land prices rcssults in developers' proposing high-flensity apartment instead of single.family development The pro- blem thus created ne=cessitates new and innovative community development pat- terns to assure compatibility of high density projects with existing single family areas, By managed growth. San Rafael can avo;d the deterioration and devaluation of reitgl borhood s resulting from overcrowding and increased traffic congec;tion. land use regulations and development criteria must allow in- erea,w- f density wAy in such a way rs to pae ,crve the sought-after c);rwre:ti€"' of ei;iAing areas. W- r�;by assuring the cont'lnu+:d del:ir"ab'dit( of !%at 11�u"USP IG' Uu'4tju THIS RE&D' ItE RITUAL ER11MONFFENT A. I NTP®DUCUON cl-1,ipier identifies the nature of San ltafael', llnusing and residential develop- ment needs, and recommends methods for dealing with them. Although the needs are irterrclated, it is necessary to con- id(:r :-:il_h ens' as an independent activity requiring a distinctly different apprnach. ]lousing markets and housing problems are not strictly restricted to City twundaries: many solutions, nevertheless, inwit, lse implemented at the municipal le%el. In addAwn, the developmen! of t-,resenEly op^s7 areas for neer residences, G ante tlet' rt'1'r_fr•'1 ttlti'i?i and 11113 lifif' a!,mi of r'Xi:+tEl)1.; re! iv?i-ntmi vvigh!wr::r.'4yl:: arc fl)i1}pr rrlt!rlif t? t !}!i(�i i'tillitrtt�•rC'q ring if -m vativi! pruce.(lures for rt'i..tn8glne, flli� city's rrr-,idential arol>tith Conventional lot -by -lot zoning controls, yard setbacks and land coverage are inadequate to assure protection for foreseeable urban growth Development must be managed withoutdestroying neighborhoods or the natural environ- 1. Background and Summitry off ,.;v s The :tiny of ;i nt} llnfael's Ein•t;:iM ar!d re:,idential living en-. i ,;lzlrr.?: l `4 twon conducteii in tv;o ph -i r F'im', th' City's existing and its rel' t v, 1'— it' ':1 in the larger hensing rcarke t wa ^ Recommended cii.ywide huinsiolpi and an initiral list of liI 'in rt• for Improving holl5ing 1:n t?t: S'it'e'.','.`"`' Area, we -r(, de,-,ns�,d. Ae second par! of the st-tviy' fit i€?!.,ci tier (Cita; Sniff) 8tl Zl1';f•'17t�!Triio•ust .:s}"r:'ii;3, 'fir!:.es.i.?>: i/i%.. Cii5Li:11'!t'ii:i.{j iiL'.y c3 �.?g'iT�. {''P t.]•.'SI' i!')h"i. res -id ei:rt?ill 13'-:nLT ('li`,•'i'!)'l ..0 f 71?"?. 1:1r m.rary rrnsjdr-ra.'._n71 pr ..t:r_':nlior of ant -1 ino.nal =.a? 7 irl! t7 :;:. 1)t).i.ic i.c; ;_ „t ,r't Clt'tnii tT?fla:° i.l`a };.. a) ',.rS.i";.i', i..?.:. -...•r: :+, tt«li.is)t; 't'4•ti•{' a!!r'. `l'f'E!E,it-cs While cue=iprise the of tile Planni}.k? hilt_` other t?:... 6'it)S✓3rTt.rc111? Ir'•�.e[a;,:%^,;4?iA lt.r}t:':'k?..:Y'f:`f? i:i rilrtitr-i1.SlZt ;,tf'>.;,s'j.ttrk'F 1i:ti?:!`R :(i«: .ii; d('.adv, This to Crintin 1:�. •:.�::........ +. » — ..,.: Y'L-c: a_;: - - Aye'.-- _ . `F' -'-S baa+•-•:.,+-». .•- ..--..> .- •„�-- -.,.. .7 .. '-" .m!Pf • . n..C. �w , _ y'-At4 '.,'-•.'p..y •' �au.w>w. � 1 T:w. ,�. -n T _, T 4.. w ....,. . • w 1 Ni.• :.�w,, 1:: a b c d It Breakdowns of percent of structure types to other jurisdictions in the Bay Area, are TABLE 6 in the Planning Area in 1970, as compared summarized below: PERCENT DISTRIBUTION OF HOME VALUES ° TABLES STRUCTURAL TYPES :iource: Planning Marin San Bay Ma in Area County Francisco Area Structure T�y .e Percent Percent Percent Percent I Unit 10.6 733 - 33.7 62.6 2 or move wnits 28.2 260 076.2 35.7 "MrA le §lo ales 12 0.7 0.1 1.6 27.18 100.0 19,90 100.0 100.0 11, 8, Census of Vausinl?. 1970 Compn.'atively, t;7-17`'ianning Area has a srn;:,ller snare (�f sln;le-family dwellings than the `:'olt�ai., as a whole but considerab1cr hlgh2r than tine 131y area houzing rlW-keta The contrast lxitween San tirafael's suburban develop - m sit and that of an inner city, s,-,gh aL; San Francisco. is NoT/ZpK Nq,ultiple unit dcveiopment in San Rafael has been taking place primarily in or near dowrtown San Rafael, in the East San Rafael area, and in the Los Ranchitos and Lower Terra Linda areas adjoining Northgate Shopping; Center. The larger (10+ unit) apartment structures are locating primarily just north of downtown and in the East San Rafael development. .The 521.3 percent owner occupancy of units in the San Rafael Planning Area approximates the Alarin average of 58.2 percent in the same census year 11970). Comparison of data on 1 -unit structures and owner occupancy figures also reveals that there are substantial numbers of tenant occupied single-family homes in the Planning Area. These single-family rental, are apparently widely distributed and not concentrated in particular types of rI sulcm>ial development. Furilier discus- slwl of this dlarticteristic is presented lia(cr iat 4iiis ducumtrnt definition of overcrowding is based on persons per room. It was concluded that San Rafael is not plagued with significant quantities of overcrowding, and what overcrowding exists is concentrated in two tracts: the census tract containing the dov,I-�tcmn residential neighborhoods and (he tract in which Santa Venetia is located. In summarv, while San Rafael housing is ixell maintained as a whole, there are numerous ;streets aid small areas urgently in need of a rehabilitation program to prevent the spread of blight to otherwise helthy neighborhoods. Very few structures could be classified as dilapidated to a point where demolition is indicated. .gardin r size of ouseholds cu g using its wi the Plan ng A A 1970 percent es found Ma in aunty a. a whole. •omparison -eve a ise cor elation hen comps ng r m unt p i centagc with they perc t Anbuti of hoes r old size, ho ever, e in id an a r�encc Of -orrelation idicati itilbaka ce betwe" n existing; s ply a Single-family subdivision development of the 1960's decade was a major factor in the existing value profile since in areas like Peacock Gap and Glenwood was primarily limited to large homes Rental levels in San Rafael, contrasted 'i NE 0044/ AN 0 9Av AgEA show r,iucATi:r:AseLY LAWN amounts of high priced housingo rr Low vacancies, a reliable indicator of housing shortages exist in almost all portions of the Planning Area except for rentals in the downtown neighbor- hood (4.4%), the Lincoln Avenue (3.3%), and the East San Rafael (4.195) �* *Source: U.S. Census of Housing, 1970. The higher vacancy rates in the first two areas correlate with poorer housing conditions. Recent construction of the units hi East San Rafael may have been a factor in the high number of units available here. Planning Area rental vacancies in 1970 constituted 1.7 percent of the housing It %ge tit ltt•sidetaial Rruclures 1 , San Rafael Maria Bay Area Under $5,000 - .13 .17 5,000-9,999 0.0 .34 1.13 - 10,000.14,999 0.4 1.59 5.00 15,000-19,999 2.7 5.38 15.95 20,000-24,999 10.0 13.36 24.2-5 25,000-34,999 34.4 32.94 31.12 3:5,000-49,999 35.2 27.18 15.01 50,000 17.1 18.25 7.33 � • - 99.8 99.97 99.96 * (An annual adjustment of Source: Derived from U.S. Census of to 10 percent is necessary to update dolls Housing, 1970 v es reflect present market values' NES V^EUEIC xt"T) Single-family subdivision development of the 1960's decade was a major factor in the existing value profile since in areas like Peacock Gap and Glenwood was primarily limited to large homes Rental levels in San Rafael, contrasted 'i NE 0044/ AN 0 9Av AgEA show r,iucATi:r:AseLY LAWN amounts of high priced housingo rr Low vacancies, a reliable indicator of housing shortages exist in almost all portions of the Planning Area except for rentals in the downtown neighbor- hood (4.4%), the Lincoln Avenue (3.3%), and the East San Rafael (4.195) �* *Source: U.S. Census of Housing, 1970. The higher vacancy rates in the first two areas correlate with poorer housing conditions. Recent construction of the units hi East San Rafael may have been a factor in the high number of units available here. Planning Area rental vacancies in 1970 constituted 1.7 percent of the housing It %ge tit ltt•sidetaial Rruclures 1 , S.il• lcat1+c•1 emitaans it high proportion of 1 1;atrai' a•iia;iI . ttitact i)arvsing ;acid e, large r ila4, oiler homes With arc•hitec- 'idl".li :Itll`1•lai' l43ti(!)1'll';al interesi µ 5*C VALV c jll olit,,quyarler of all units in the t'ity, as ra4^ A 1 n7 iia:i'4'ta tSb!(I, v, -ere over art) :'ears old F �'+rh• 1 11 ails u1tl1{ase older structures provide it ) >,+iaal 1, r: ssturcr in terms c.. ;ultp y uT 2 i ti:cai'.i•rn;t•!;'l;riceti housin„, ,� •Th��t � Alflioug;r sortae older structu es t � • - � two dilai:,Ifl W11, A--- maintained --m aint.ained and are basks llr sound. C, 11{)t:Ling t'aanctitinns 3) r ;aiaaati"i overall housing condi- taa}ii'i J%1I: 1{iliaa`l i"rr,A53:CriV1•c9141Na:o7pAT l)oa.ii:l, 11/14 hm.ri maintained at a High S 'A racARI' and Iha several of the areas designated as neighbonccrds have no deficiencies determinable €rom exterior survey. Survey results generally coincided with a 1960 Census finding al 92% sound s'ructures. moor condition does not entirely correlate with aye in the Planning Area. Deterioration was found in post World War 11 housin6tich as in Santa venetiji, However, conditions that were rated as deteriorating and requiring rehabilitation oicuRAU with greater frequency in older housing areas adjacent to the Central Business District. Also, in some of the older areas, poor housing conditions ci(IM'p with greater frequency when properties were close to heavy through traffic, when they w re served by deficient streets, or when they were located in R-3 zoning districts. Because overcrowding of units usually correlates with poor housing conditions, a special study was made of census tract data regarding this factor. The U.S. census 'nt Ptanr ns r 1(_ -ss ler Witt' fri iy har� on Area hour holds are could seem 110 find fe which to sel ct a hom y deficienc}is partie alder counlcl or retia market Vacant -for -sale units accounted for o.4 percent of the sales housing.. Consider that Federal guidelines for the Leased Housing Program have used a 3 percent vacancy ratio as the upper limit of a "tight" rental market. ,&jivi(ln i in vidty of the i 3flationa Q, tiummary �.r. Shortages, particularly in small units and indications are that the number moderately priced units, and A A15IK­, welling units 7wr eArjeFAa,::w, rcX in IIdic� i at resid is in area like thos i-1 C,; 5e, cost spiral 60Planning Area will not be stiff icien o i the s pes of she San R fael hill elieve the grousing shortage. 'V=M J� eacock� Gap, Glr. wood -Bay iew, Loc besiege San Rafael's housing marketiou;in ca,t;'iv ll�ri c . Positive �ileve llpmond-'plands are over used bu greater degree than for the Bay Area as a ment policies and effective implemen' willing to ay a hig housing c t in orde whole. Consequently, techniques will be necessary to insure tj� enjoy I the spa ousness the ne regional housing crisis is heightened in the development of an adequate numbe 19mes. It: is also p1 bable tha some Sa Planning Area. housing units to accommodate a full ra I fael fa ilies ar • buying ho ing spa t tine r� o;nmclr t��thedet mentofc 15erneeds. he lack Population protections Fen ref r+narr4 of incomes and to ince. couNTOWiT Porti 4Ra housing goals. 7l sail uni supply ay be a c ontributin predicated on substantial increases in Of equal concern is the ability of pu' employment within Marin County and the Awagencies Al, at'! Z A Planning Area, although population is not environment to absorb large amount d The Cost of Availability of Housing expected to increase as fast as employ- residential development. Questions of Like Marin County and the Bay Area as a ment. Since the quantity of low and (in dollars„time and environment) whole, San Rafael has been suffering a moderate income housing is so limited, raised regarding the amount of deve continuing short supply of housing and an people of such ranges of income will have ment to be permitted annually. Quest upward trend of housing price for the few to be housed outside Marin County* are also raised about the long -`u units that do become available. In Unless there consequences of change addition, is an effort to provide greater amounts of on 'ail' quality, on . as illustrated on the low and moderate income housing, or to livability of San Rafael, and on following table, -SAH RAFAE6 PERcENT401C of attract upper income employment, or capability of the City and special dish units for moderate income families than i both, existing disparities between employ- to supply ra✓quired residential a ment and housing will continue. servicer at the .^ proprinto tim, found in the larger market area g FAR ceWE, YW Tt'tJ1T 2. The Housing Problem The principal issue facing San Rafael ar. other suburban areas is that an I creasingly large segment of those wt work here cannot afford the cost of housir accommodations This problem is caused by numerot factors including the high cost of lani interest, labor and taxes. these factors affect young married coupl, as we31 as the retired and elderly persoi who wish to continue to reside her Evidence that the situation is a serious o: is amply documented. In 1960, according the Federal Housing Administration market analysis of Marin County, t! vacancy rate was 1.9 percent for houserginthe City; the situatIon worsen. in 1960 when the vacancy pereental dropp,2d to 1.8 percent and in 1'310 dropp to 1.7 percent. It is well known that vacancy rate of about 5 percent prerequisite to a healthy competiti housing market. This percentage a recommended goal in Marin Cour where all housing is costly and shortaf affect the tower income group me seriously. This and other da(a show tl- the number of would -le resideri v, una-i to afford the rent or the purchase price; housing licre, greatly in_rea r'd during t last decade. At the same time, Lhe stock older lious,ng in San Rafael - :Which is t chief housing rmo+urce for such individli: - is being constantly eroded. It is e;timat that, on the average, between 15 and such dwelling; unity are be'ro demol'ist yearly. The inflationary spiral Is si- ch t! San Rafael is not only faced w difficulties in providing*, houFing for to income families, but Is likevyise timitec its provision of shelter for the, rr-oder income citizen who live✓ and works in : Rafael. Another important issue facing; San Rai and other suburban areas is tate press of the private inar ket to develcip, with r res;dential un 'ts, large areas of preset undeveloped land. The public has r ponded by asking that developMent 0ifrvi[l-Arlen spaces and residen amenities, iw,,5rmlo cN oncA;t•RFzi--t. OF 174E Lir4'7ATh'Ne. eF Tfte LAW% ViL;i- ' MenT f:-rta•PrrAL, ._ __.� d_>._ .. .1.1.......1..1, ,- ->.�„ .......-„_._._•--......�...�.�,•._,,,�,....._.. 00 p ( 16, rtltl tij 10i 44b. ki 1'9E" 4 31 N 11127 I P, del P. M t: ail Y 6- V c. 4c. 3: lb 06 th c 0 06 0 C V eD Ch. 3r, z CL uj z LLJ CID u u L. oc 00 C) a P9 and Population Issues various ways to categorize 5.g., nvailability, quality, defi- var , (apartment, duplex, a app. opriate and necessary to oousfng in terms of special needs :rly, handicapped, extended students) and to redognize this as weblem to be faced in managed rogramming. Housing may be d in terms of building types: 1) ally, detached; 2) single family, - i.e'., rowhouses, townhouses or of homes; 3) multi -family it units; 4) multi -family mixed - tures; 5) mobile homes. Over the lrket conditions shift. Results are mixes of building tym This affects al densities, increases demands nicipal facilities and services, and normal patterns of housing ity. Tends in cor action, unless managed, It in is. eater numbers of high cast wits without meeting the needs of e income families. The General uses on ways the City can manage rision and location of housing in rAiNT-M p a reasonably balanced mix for a diverse population. b From 1960 to 1970 the population of the Planning Area expanded 54.4 percent, from 36,372 persons to 56,164 persons. During this same period, Table a indicates that the number of occupied dwelling units increased from 10,945 in 1960 to 18,769 in 1970. This represents an annual average Increase of 782. new dwellings. Since 1970 there has been an almost identical annual increase of 781 dwelling units per year for the Planning Area as indicated by Tableg, is fr4m f970 to973 hasen to ent c traine :since Ju 1972 City San Raf, 1 adop the Gt ince N . 1068) w -ch resT ae Lent on reels ntai Iwo more undevel ped lanwho ve or more a joiningrce ,The Marin Countywide Plan projects that, under market condi- tions, the population in 1990 of the San Rafael Planning Area will contain 100,300 people (see Table W). While the rate of growth would be substantially less than during the 1980-1970 decade, the annual growth increment would actually increase from an average of 1979 people per year during the 1960's to 2145 people per year from 1970-1990. Although the Countywide Plan indicates growth figures under market conditions, the Plan is actually proposing an alternative - a lower 1990 population figure of 80,700 for the San Rafael Planning Area. This lower figure would imply a smaller annual growth increment (1165 people per year) than file of housing in the Planning Area in 1970 is set forth in the following tables: TABLE, kn annual adjustment of 8 to 10 percent is ecessary to update dollar values to Alect present market values). TABLE g NUMBER OF OCCUPIED DWELLING UNITS, 1960.1970 HOUSING VALUES' Market* 1960-1970 Average Annual Percent Low , Percent Percent Increase Number ($W,OOor ($20,000- (Above s Gallinas Valley of Units $150 Rental) $35,00 5M,N) vneroccupied 5 1. 50.5 57.4 47.9 23.3 ental 1,657 19.3 7,029 6.3 52.3 41.4 )tai :rcent Change since 1960 94.0 -5.9 -14'2 20.1 54'7 in Rafael Basin 6,102 6.2 39.1 40.3 4.4 5,638 55.3 unlimited expansion, ; tt is rather to balance environmental, ,octal and eco - Unincorporated Ls Gallinas Valley 11,740 29.8 39.7 30.5 :rcent Change since 1960 60.3 -14.4 -2.8 17.2 kn annual adjustment of 8 to 10 percent is ecessary to update dollar values to Alect present market values). TABLE g NUMBER OF OCCUPIED DWELLING UNITS, 1960.1970 Countywide Plan Market* 1960-1970 Average Annual 1960 1970 Increase' Increase Rafael Basin 7,323 11,740 4,417 3'407 442 341 o Gallinas Valley 3+622 10,945 7,029 18,709 7,824 982 all Planning Area in the City. is modified by expressed city policy Policy 6• Plan prepared by the Marin County Planning Department. TABLE'T occurred from 1980-1970. In terms of housing, the Countywide Plan recom- mends that the San Rafael Basin and Las Gallinas Valley grow at a rate of not more than 250 dwelling units per year each or rM units for the whole Planning Area. The average annual increase in housing units d' constructed during the period April 1, IM to April 1, 1973, in contrast to this recommendation was 781 units. MARIn CV�NTYWIX PIAN Population PrOjec- tions are as follows: TABLE !o POPULATION GROWTH, 1990 1970 Countywide Plan Market* Population 1990 Population 199019M Peron San Rafael Basin 31,600 41,000 39,700 45,E $4'700 Las Gallinas Valley 25,800 Planning Area Total 57,400 80,700 100,300 Source: Marin Countywide Plan * Bay Area Simulation Study V projection, modified by Marin County Planning Department to account for family size reported in the 1970 Census and for technical "bias" in the model. ` TABLE 11 POPULATION PROJE, CTION 1970 19E0 19M Las Gallinas Valley 25,800 33,200 39,700 San Rafael Basin 31,600 37,700 41,000 Total Planning Area x0,900 80'700 Source 1970 U.S. Census --Projections from Marin Countywide Plan. CO�h i y"w�oc" Plan housing and population estimates can be replaced with population projections for the San Rafael Planning Area only after detailed Neighborhood Plans have been reviewed for accepta- bility on both neighborhood and citywide levels. The appropriate densities in the 0. POLICIES The following policies underlie and shape the character and orientation of the Housing Element: GENERAL It is the policy of the City of San Rafael to: Polley 1: TAKE a" ro fRi-ERt%TIONS re, �RC�ChT disruptive population growth within the Planning Area. Policy B: Emphasize the conservation and rehabi- litation of the viable older housing stock in the City in order to preserve neighborhood character, and where economically feasi- ble, to retain a supply of low and moderate income units. Policy 3: Include provisions for residential develop- ment of varied types in the plans and proposals for the Downtown and Northgate Activity Centers. built-up and newly developing areas % be determined based upon a thorough evaluation of the environmental capacities of the various neighborhoods, and, eventually, on the Specific Plans to be developed for each neighborhood. encs prior to adopting final neighborhood plans. ;�c Policy 9: Require that the rehabilitation of existing residential units and the construction of new units in developed areas be subject to the policies and standards of adopted Neighborhood, Area kr Redevelopment Plans. Policy 10: Provide opportunitibs, where feasible, for residents displaced by rehabilitation or redevelopment, to continue living in their existing neighborhood. Policy 11: Protect neighborhoods from the type of urban development which would destroy their natural qualities. C. IMPLEMENTATION MA.NAGETIENT OF RESIDENTIAL GROWTH AND DEVELOPMENT Policy 4: ,RKE Acs- PC5�60&rACTW" T6 a'ce: Tables developed from data contained in U.S. Census and the Marin Countywide San Rafael's capacity to accommodate Encourage organi- zations, agencies, and housing sponsors to development is of great 5ignificancL because of the fragile nature of the provide a diversity of housing, parti- remaining undeveloped land. The quantity cularly housing for low and moderate and type of residential development that income persons. this undeveloped Zand can support i.: It is not the ultimate intention this Plan determined by analzing characteristics o - Policy 5: terrain and the soil and adjacentby Encourage the development of housing for assessing the environmental impact ofthe the elderly that will permit them to remain development. The determinat ton A"' in the City. is modified by expressed city policy Policy 6• regarding environmental resource areas are listed as environmental Encourage the development of housing for (these areas with special needs; for exam le resources in the Conservation. And Open - people the medically handicapped. TA" Akn Space Element, e-- These areas , should be left undisturbed, to their natural Policy 7: ATTEFt f T 7-0 state. After evaluation of all these factors, Maintain as a minimum the existing the residential land use potential is loca transpar , urce: table developed from "Residential Construction and Housing Unit Summary, opens ace and to consider along with Procedure establishes the means for -- Marin County as of April 1,1973", prepared by the Marin County Planning other actors locally expressed prefer- detc rinser�±M IbSr_.antent?al develop-, , Department, 9-4-73. 'Y'Prb �� "'' 9-1 TSI i. D �TArF w�t�T c�= 114TC-AW /100 v Z NO<- Re PULATION r:1IT`f AAAI W15 r -Ci-- He � IAWWS) /V C -A P C 1 T Y '2) APRT'01CF adw �UIl'Kc2,i6a-4o rtion of housing for those with low or determined. 11� HOUSING UNITS CONSTRUCTED,1970-1973 OF rate income and w never Ede l opportunities for low and It is not the ultimate intention this Plan April 1,1970• Average Annual lousing moderate income persons. d to set arbitrary numbers as indication of April 1, 1973 Increase future population growth. The question is 1,187 396 NEIGHBORHOOD AREAS not whether to stop growth or allow ;A n Rafael Basin City 1,172391 It is the policy of the City of San Rafael to, unlimited expansion, ; tt is rather to balance environmental, ,octal and eco - Unincorporated Ls Gallinas Valley 15 1+1� 5 Policy 8: Encourage local representative groups to nomic needs. and to guide the com- munity's future by setting realistic goals ' City 730 243 engage in the planning of their areas and today. The setting of quotas alone does not Unincorporated '126 2,343 142 781 to establish objectives and guidelines for improvement, housing, ensure quality development. On the other � ttalPlanningArea environmental 1 tation recreation parks and hard, a proposed Residential Review:J loca transpar , urce: table developed from "Residential Construction and Housing Unit Summary, opens ace and to consider along with Procedure establishes the means for -- Marin County as of April 1,1973", prepared by the Marin County Planning other actors locally expressed prefer- detc rinser�±M IbSr_.antent?al develop-, , Department, 9-4-73. 'Y'Prb �� "'' 9-1 TSI i. D �TArF w�t�T c�= 114TC-AW /100 v Z NO<- Re PULATION r:1IT`f AAAI W15 r -Ci-- He � IAWWS) /V C -A P C 1 T Y '2) APRT'01CF adw �UIl'Kc2,i6a-4o a ment is consistent with the goals and policies of the General Plan. With a methodology to evaluate proposed de- velopment, in the interest of insuring conformance with the desires of the community, control by annual quotas for residential units becomes unnecessary. The suggested process, by its very nature, ,ill pace the demand for growth. 1. Residential Review Procedure (RRP) In order to manage systematically the :Manges in the environment of San Rafael, ind to avoid problems associated with lisruptive, excessive, and ill-timed resi- lential growth, the General Plan incor- )orates a procedure for the reviev. and ipproval of new resid3!ntial units. ]lie Review Methodology rhe screening or review process for all -esidential development involv_i,g five or nors. units is deemed essential for the 'ontinued orderly growth of the com- nunity and its area of influence In -intrast to present continual bi-monthly ocessing of major and minor zoning ipp)jcations, an aggregation of major iroject proposals will be submitted tome Tanning Commission for thorough com- irehensive analysis on a quarterly basis, woviding for more significant Commis - ion input as well as meeting new State guidelines regarding the potential environ- nental impact of each proposal. fie Residential Review Procedure, there - ore, will concern itself with: a s she .,nvironment's considered capacity to .upportdevelopment, b) the preservation and protection of environmental resource i.reas, c) the community's considered ibility to program provision of utilities nd services and, d) the City's evaluation f projects in terms of environmental and esign quality. i llgjyss�s of.thet;F,eatures of the Land the ability of the land to accommodate the Iroposed project) * . v `vl v n M r- U ` r i u u 'a O U u U u 2 v o y -- c of t:: i u u ro 4 o C ^ > Q V — ` _ u � C W G w n u X 1. u c f_ T y E w c J N :J Ll N 4 N _ (• - v a 2 14 u u c .. u V n •i O o v The criteria used in analyzing land pacities and establishing tract or zone iisities are outlined in a proposed dcntial Review Ordinance. Environmental Policies vironmental resource areas, are gener- of two types. One type involves lairds ,ing natural -process characteristics t cannot withstand any amount of ,urbane of physical alteration without nificant irreversible damage, e.g., tidal rshes. :re are other land forms within the .ening area capable of accommodating mited amount of residential develop - b C d 14 ' bicycle Ifaths serving neighborhood fa`ci-' lilies incorporated. L r ment, but which must be designated As environmental resource areas because of their visual qualities. Specifically, these areas include the many ridge -lines that serve as visual backdrops. Grading, cut and fill, and defoliation, all elements associated with development, would disfieure such areas, PFS,Mfiw& rHon 1/15m. q,s t75 The residential land use potential for both these areas must be considered extremely low in view of the expres-ed policy of this plan. Theref re, development proposals in an Envir nmental Resource Area will be requir,.d to present spec'if'ic environmental data I , - ,i, r ..--rt.Rrmrrq,r V Analysis of the Capacity of the Community Service Systems to Support the Project Proposal By introducing a residential review procedure it is possible to eliminate unplanned and uncoordinated growth which would either overtax, or ignore the lack of, community facilir es such as drainage, roads and sewer. An official public improvement program provides the major basis for proper decision-makieg in the orderly establish- ment of Extensions of utilities and public services The Rcsidential Review Proce- dure will put major emphasis on analyzing ttre existing as well as t)ie proposed' capacities of the various utility and service systems. It will also evaluate thee timing of proposed extensions in s6rvice. - On a quarterly basis, an aggregation of project applications will he reviewed. A major aspect of such review will be to assure that no excebsive extensions or overloads of the service distribution system are required or advocated by the proposed development The capacity of the following systems will be evaluated in each imtance: water distribution, drain- age, sewers, public transportation, streets, parks, recreation, and fire facilities The foregoing program entails public action and public responsibilities. For effective application of the review process, annual program evaluation and budgeting for public improvements is necessary. Also involved is coordination between the responsible agencies and jurisdictions. A key consideration in the formulation of an initial public improvement program and of its annual review is to assure that each public improvement system reflects the capacity of the land to support develop ment proposals. d. The Evaluation of the Project's Environmental and Design [dualities A third significant part of the review procedure is the analysis of a project's effect or impact on its site and on the general environment. Design character- istics and construction measures will be evaluated for accommodation and -or conformity to and features, i.e., tree cover, soil bear ng capacity, or scenic views. Addition. I c n ern and analysis will be directed toward the quality of the living environment and the design features providing privacy. security, adequate convenience and a blend of architectural features which will harmonize with the natural and the man-made environment. This evaluation will be accomplished under the Residential Review Ordinance to be adopted as part of the Municipal Code Chapter 14, Zoning. a. Residential Neighborhood Plans An important feature of San Rafael is the distinct and identifiable characteristics of its residential neighborhoods, Physical featues such as ridgelines or knolls, social and cultural features such as historic structures and dwellings with landmark or exceptional landscape values illustrate factors which inspire citizen identification with the neighborhood. The very active homeowners' associations which have formed in many of the neighborhoods are expression of close community ties. Inherent in these strong localized ties is an appreciation of the high quality of the distinctive features of the neighborhood, and includgs feelings of 6rotectionism lest these qualities be lost. There are various ways to assure the retention of environmental quality, i.e.: adopting comprehensive, reasonable and understandable development criteria.. in- volving neighborhood groups in the planning process, and enuring full notice of public hearings. Whin_ s will prode th to learn njore at - its char terist tur needing eservation,,prob be solved, nd types f fu elop ent cons' nt with 1 al v. l co unity goa . Particula ly, n boo involvem nt and hel the Extensive areas of older housing are beginning t'o feel marked pressure for replacement. Especially near the Down - (own, certain neigliborhonds are entering uneasy periods of transition. A positive action program to conserve older housing stock of special value should be empha- sized in Neighborhood Plans. Examples of special values include houses of architec- tural or historical significance or houses affording low or moderate rentals. For purposes of analysis, and as an aid in this neighborhood planning process, the San Rafael Planning Area was divided into 30 neighborhoods (see Map 6). The basic premise in the delineation of neighbor- hoods was that present residential enclaves, with their many natural barriers and delineators, provide attractive and often unique living environments. These elements require recognition and preser- vation in the planning and dev``S�lopment process. Neighbor- hoodPaci=1LCFs q5 prepared; wit - reflect information relevant to planning and development decisions such as the environmental setting, landscaping, loca- tion of housing types, circulation and transportation, and services. These profiles, contained in the Technical Appendix, can provide back- ground information for the preparation of individual Neighborhood Plans. Items that might be included as components of specific or neighborhood plans include the following. a. Neighborhood Design Character Design standards should ensure the compatibility between the new develop- ment and the existing or desired character of each neighborhood. b. "Sacred Cows" Many significant natural or cultural features have been identified as important to the preservation of neighborhood character. More detailed concern will be exercised regarding features such as hillsides, knolls, a grove of trees, a small pond, important scenic views and signifi- cant structures or historical sites. c. Circulation Local street alignments need to be adjusted, sidewalks provided, roads wi- dened, traffic channelized, emergency access established, and pedestrian and d. !lousing Indication should be made as to where and how low and moderate income housing is to be developed in accordance with the policies, standards and criteria adopted by the City Council. e. Recreation A citywide park and recreation plan is essential to coordinate the provision of facilities; however, specific sites, needs, and capacities can best be determined, on a neighborhood basis, in the process of specific neighborhood plan development. f. Socio -Cultural The location of schools, libraries, and perhaps day care and health centers should be determined. g. Commercial Services Continued consideration must be given to convenience shopping facilities within neighborhoods, with concurrent determi- nation of what existing nonconforming uses must be eliminated. Keeping in mind and respecting the neighborhoods recognized values and its objections to certain proposals, the City Council and Planning Commission shall assume responsibility for ensuring that at citywide goals and policies are met. o y. Potential Housing Programs Imple- menting the Provision of Dwelling Units for all Segments of Population (techniques and tools to maintain housing Balance). Support programs to provide housing for low and moderate income families. a. City encouragement of coopera- tives or limited dividend corporations. Nonprofit cooperatives or limited dividend corporations can provide the mechanics for the development of housing programs for low and moderate income families. Both of these types of institutions operate as free or private enterprise systems. Both systems provide a pattern for partnership with local government. Nonprofit coopera- tive or limited dividend corporal ions work jointly with the City to resolve housing needs. These institutions can lower house prices by: 1) comprehensive and efficient programming, 2) financing which pro- vides flexible amortization and reasonable terms, and 3) mass purchasing. There are very few instances of successful rehabilitation programs, other than gov- ernment endeavors, pursued by private enterprise on a case-by-case basis. Alexandria, Virginia and Georgetown, Washington, D.C. are two rare examples of private enterprise's rehabilitation of high value neighborhoods. These are exceptions rather than the rule. In practice, to be successful, extensive and comprehensive rehabilitation programs for the conversion of rental to cooperative ownership requires a partnership between local government and a cooperative housing corporation. Based on recent studies, by the use of nonprofit cooperative -government or limi- ted dividend corporation -government pro- grams, housing prices or market rents,,, usually requiring minimum annual hailaee'.,, housing allocation of lA of monthly,° income), can be provider] to hous0uf, , `- with incomes as low as $7,000. Provided limited subsidies and property tax exemptions on land are available, even lower income families can be supplied with housing. k,'starjiishpient of a revruving iii sed on increas tax increm ! reves, rived from ne . developme , and t lationary spi , channel ids of su ids to nonprof cooperativ housie tal or interest ubsidies, la bank' subsidy finan ng. er redevelops�}} nt laws of State ifornia, incr . ses in to + ey.n N yy 0 I t 1► a tverted froormal g ernment f-listribution funneled : stead int =nusi.n�a pros. This chnique Ta rib l tax hieat fundi • .Funds �a committed 0, 15, 20 ore yea �'oads can bewn again such fun la up t71' in pr'' ess. b. the presensing mix i the ratio using avafilrbility to hid h, middle I Aoderatc and IEiincome wE, nents of tV. k,pulation) i;a it� to be n�aired, ;niflcant con mittneni m�33s,t he magi dad viab:e tech.,`tyli�l ar:;,p' c , . F�couWatc � ,,,clu'ilklues rnw,4� t,�e wcrk,.,111 (niviI1L fli f{tl:aleT ti;'�i f!+ national :I[ �4'i t ,._-_-n is in land values, 1" 0 iii•a:;in� P,'TL;ixuct OTO, t {iriiial mark(Ing as �:-e! a tt ts'lere�.salc �s( rC:$it14'i2tin] CQg:'r•°.'.( .. 11 t�r.ier to a,s'fttT, e 1Ij1� de3ired iv- 1s�! g ra.B Cr UalanWe, pubai;4 ai ocaf vn 6' v3-ry sub c' �;ntial suns <i.I. wo3,ey r-121. be celnint i' i ov-,'r I -r.4. PeQloez Gi tall: '• �1`i: gpxa.-tL01 ��' la n t i,;l' TO how can stzi:j, fu.�-I..ial s°�:��j�i;::;..'--.i�:c.� 1a,3 ,,s_urried? ToTo,e City of San'tafael, with' he excllasi ,e present 1 eveloprai rt Area, c N, declared a ax incre�'lent distr al wing a pere Cage of tl'i revenues N. returned t the Cityii for use sit :;idazing hcj . g rental (far purcha >< lie imDrovei nts, and tt»e acquisit. 3 b th a prograrD of housing rtnership ediisisting of c d a nonprit cooperal ams have t4, special me volving fu- ds which E ailabb fo use as hour yen unde inflation, nprofit coo �ratives is si original prto structure uity is po bible. Only hire", in tie eorporati yelling unit, buildings, b C percent Although this concept is applicable mainly must be constituted on either state ansored by to single-family houses (owner occupied), governmental levels. governme it might also be Applied to condominum advantage to younger borrowers. They e. Such pr programs, The Federal Home Loan Bank e. Interest subsidy b state y If of produ ' Board (FHLBB) permits savings and meet• programs Federal programs of interest subs g subsidie loans associations to negotiate flexible mortgage payments to suit the needs of beenl practiced for a number of e nature younger borrowers who in the future will state sponsorship or similar to 1 that contr receive increasing incomes. grams should be advocated. I retention interest, o Under the new FHLBB flexible payment f• Annually review the prop low is sold Th regulation, mortgagees can acquire n home with lower down payments. loans and moderate income developed over the previous y land remai can be arranged u to 95 of the monitor new proposals in o ,.e pro ert , ' R 5 ,rt_ ,,property's of the coo native. On1i p rmaintain value - a ver definite y an appropriate citywide :Ihares are i. arch and t;t�e +ransferred; erefore, titl i insurance, a3or fees fo advantage to younger borrowers. They g• Endorsement of land banl i ecording, cid., are not i volved. Thi begin repaying loans at a lower monthly means of implementing p ementing hansi r �joaperat;ve �eproach, in c ntrast tot rate during the first five years (the period lower income Thereafter, grams. "ban] al urcl*.ase of a '1welling uni , of capacity). Land, after acquisition and C. -,P17ive-nECo s net a�,d 1'o the inflstioryy,iry spiral; monthly loan payments are higher the City, is programmed for use it 1 °rile, the urt�',.maybe tnair'l wined at cl i. i the orifi in,a}i co -t in coricla.ant dolla - a ways: 1) The trading of sites bete, and developers, under stipulate than, w :t in th(I market f , r d. Local or state government spon- tions, to stimulate the corut tructit tr sorship of mortgage insurance WHA or moderate cost housing, 2)The h type). developers, with similar condition C Promotion cf a flexible mortgage Banks whose mortgage loans are insured interest of developing low or in payment plan under government sponsorship are en- cost housing, 3) The leasing of the Examples On an 8 percent, 33 year, $:0,000 couraged to lend money on homes of other uses in order to earn addition morrgage. the normal menth'y payment greater risk. Such loans, higher than which then are earmarked for vloWd bE $220.00. Under the flexible conventional bank loans, afford pur- subsidies. mortgage plan, the borrower could pay chasers the possibility of buying with $290.00 for the4irst five years, and then lover down payments. J, Other potential sources pay $230.00 a month for the remaining are as follaus term durinr,, Lvttich,his.incem_ would be The institutional structure and manpower 1) real estate transfer tax, 2) pt for such a moil a e. insurance program special loan funds. 3) tax relief, r ��- T;,•ry.5 ar�s•ria., ��r9e,;.•,)ick+ 1.d Ftv'l�o rAtica<tC VC/ QVS IT ---`?' S -rCdf.r.Il fUi_:it:--_I'/_b���_._rrrr;nc rC_^.11111�j rte' �'�•�--'nt Pr�_�- frG_:-tL:- r:; -=r----= `a_urrit+f L-Jr•lc:;� ,t Act of lf7:.. if the prccc.;,t hcusir.; mix (tics r,�Lio of hC in[r r.vailc:Lillty to hir,rr, middle, mo'4rFto and ?c:•r income sec opua1 �to t.. maintained, a significant erMMItr.ent must be r;,;dc WIZI ; i..Gl_- tcchriques Adopted. Advocated techniques must give full consideration to national and statcwidc trends in land values, to housing construction, to Initial marketing as well as to the resale of re!;idL2ntial properties. In order to assure the desired housing nix or balance, substantial numb of money Aust be eer.mltted over long periods of tine. The question Is, how car such financial responsibilities be assumed? The objective Is to fit the new federal progran into the essential elements of our present need, recognizing that it is not reasonable to expect localities to use local tax resources for such financial responsibilities. The revenue sharing funds can be used for housing programs, public Improvements, and acquisition of land. Housing sponsored by a nonprofit cooperative, like Terra Linda Gardens, can be assisted in Initial stages by using this newly available federal funding source. SUCH programs have the special ner'it of assuring a revolvirr find which promotes program continuity. Even under Inflation, the nature of nonprofit cooperatives Is such that control of original price structure and retention of equity Is posslble. Only an interest, or "share", 1n the corporation is sold. The dwelling units, buildings, and land remain the property of the cooperative. Only "shares" are trans- ferred; ti,erofore, title search and title insurance, major fees for recording, etc., arc not Involved. This cooperative approach,ln contrast to the conventional purchase of a dwelling unit, does not add to the Inflationary spiral; on resale, .the unit m_iy i,r malntalnr(I at close to the original cost In constant dollars, keeping that unit in the market for moderate Income families. wId ry � 9 f 97� ^K� CAL ;0RN h. t V_ Cnntlnt:d r.' 0,c requir, il, ui allot certain perccnLi•ves of low arm'• Incentives such as density Incrcr,.ents may be ncgoticte,, providin adequate safeguards can be established as follows: 1. Assured availability of low or moderate Income housing. 2. Enforceable covenants to Insure continuity of the itgrcerants. 3. Prevention of an Increase in rental or selling priccs result guaranteeing low or moderate lncomc housing. Exploration of i:ousing ndministrativo mothods, c.g. City Cuurlcil f Ing as a Local I'ousing Agency In the managetaunt of such prc.l;rams a foregoing, as well as monitoring single-family conversion to duple other similar programs meeting the intent of Title 7, Article 5, 6530 c of the State Planning Law. wr_iuL®ORHOODS — to d 16 and urban design elements are needed. Planning Area, making it difficult to WTER V The analyses outlined below present the determine where San Rafael ends and San BUSINESS AND IND USTRBAL REVIEW AREAS parameters for such later plans and Ansehno begins. studies: AND MULTIJUSE AMUITY CENTERS A. INTRODUCTION 1. Background and Summary of issues for the Suslrness lfnvironmonl is a source of !aria] economic fait•,, municipal revenue, and eniploy- inei%'L. 1.5:mnoraic enic-i-pi'lt°ic is 7'{!l i1)fi!;fid of Ginn basic activitii�.;: i.n>3u; t: retail CoMr.leree, and per:iraial F�tr icfs. hese direr' inay be Inu:tu:ally o-upprir'ti.- ye't taVe �;?ecafic lee;pit.craal rc cid;:: e:iuihs. 1n CW,kce':'i till Birt;:(` prtJi?Croon of ('illpil!',`n,�'I3i ^n :`tLt' lewrlaF'i, Sir ail iti4il tt7.f (F�'Gel'a`itilrant. In iIlrl il';x;:ince o° ill( iiirgfaai ��;1i,..s.li:care. 6,1:; a:,atcrral explo)itati ' tai ,11'[''?saint this e. -c- 1mi:111i; o To,xgraphq, tlloulyb p•irovidhig San Rafael ;vitis COU111167's aur&s.tljvc >rieH':i•, ef- fet:tive)y confines, economic activity to ;t•ater••relal.ed hay nluirl lapel fill ir.'as ar to s fete, small rmarslitamd valley areas. I'lae Marin County-.vAe flan reviews the 3roblems of County developailert. It mlyffsses concern for neccled efficient ,mass transit and for better conisnu +ity ;ervices, both made wvaflable to a v.ider •ange of population groups. Comparison chopping opportunities are needed in San .1afael business centers; Marin shoppers wesent.ly look to San Francisco for this wivenience. In general, the Countywide 'lair responds well to environmental miFerais in the effort to conserve the iesirable characteristics of the County. suburban subdivisions have been built in espouse to the increasing h casing ienland of the San Francisco labor force. 'here is a need for encouragiml the :rc!i isirn of more local empla; iR1 'n% to iiabl(e new Marin residents to wark in huh— home.. area. an Rafael. the city -center of Marin, !foul,: encmirage selective intensified ue r tis^ Downtown and Riortllnate airless ilip 3sizing quality. Development should I.ca seri! to regional rather that local use, ;at -- and hore is the important caveat — se:s CC;I'< rs must be designed to fit into :iii Xa`'aetl';., unique environmental `?IJn , . Citywide Factors xaiill'sie:4+ of economic activities which be considered for can Rafael are. Adh"1l;;(:.r;ative Offices, 2) General ffic r,, 3; Retail Commercial, 4) Ser- ve:,. 5) Light 'afianufinei .firing, G] Tcuni;in, :d Cra t! llu.iness and Industrial Review Areas of revicv, ai vas is an essential :arvilt of Clip. Sian Rafael Genera; flan. -('cis i Uses of land must be recognized as ving; special heeds and diverse impacts. (is has been recognized in regard to open ace, but is capable of broader placation. Just as open -space uses 4uire pirotected environments, sa do siness uses. The interrelated needs of d int -C actions between different forms bis. mess and the reniain;lei• of the nnlunity are complex, By se).ting aide i me areas a5 7Wusinesi'; and rely' n�•Eiial 0exc Areas, th—c—, !OLMiNA. sig nati.ng certain areas for business 's, as a method of guiding ba;;:in<ss iansion, is a particularly approfir ate won4':h to San Rafael's econonmc future. concept of review areas prosi(: s, at uutsf , of Ilio: General t-`lan plaianing ice';, for the esscntial ' difference ween the City's bus9rnss land market l file ri,u'adentaal land market. C'eW rel to difference in San Rafael Cas tra'here) is the difficulty of stimyatino activity in the business market in comparison to the relative ease of markrtillIg duvc.loped residential uses. VV --"?le this imbalance is a common pherimm nor. in urban America, the Chfferential in relative development pres. ;;u Fs i:, press=ntly sc-vercly exaggerated in NLO! by t.lie current housing ar.d cencuinilant pressure on the ;iau :li il) ;t iSL't a9d by the severe detie:'apable flat ,1).laliL:7aoai"; (1 : ill'.: i_atJ � ° I::; Uile (:•`it: '., t::i;n,;ragiuc It ii; >Y)a;n t.l•ss, context of present land deialit ;.rb::iltpr+_r>sures, therefore, that the Gen?.ra', Plan 1?rerare:; for San l afael's t u":inia—'s ar �r ,i) ?i'rtiGP.l futv.r by c'•: i ,sats:: l3 ae:§:.s-s ; and Endustrtal va air,' Areas wi;h the revosnmc:tdation t.t lt. i4)k`.'iti'sand i lb'1::•rC'::?rveyl for industrial, rei,ail, corilm' rciai acini (iffice use by rer:l3vinl:; tilers' from the categoriew of land Or- whir'] r iJeil::al c.cvelc:pment can be Eli'd�r.0::eih. T he re-sulting areas are defined within spec; lc geue;rarhic ioeatio-M see map 1). rlacil area is re.:ot;sired as possessing Wlique p .'iysi_) ails locational charac- teristirs, both natural and man-made, which can make it a desirable business environment. These characteristics are: relatively levcl topography, good or potentially good access, and relative freedom from gecilogic and seismic hacards. Finally, a set of recommendations is presented for the development of each of the review areas. Major considerations are those features lig!:' t`v of protection or conservation c-md ei.h, iicurnunt. new csirection:; for futures dc-,: c:lopment neces- (lry air:^'c�rat.ve mea'.aal•es for existing protalems, and the rel�,ionsltip.; of busin(.,sses to other land uses and land forms. These recommendaiions are pre- :;nnted in the net; SC -061311 of this dor:unnent. b. Multi-I'se Activity Centers Though certain forms of business activity require and allay bem^Fit from exclusive .sites, other arti."ities are hirlih, inter- dependen: asid:,-iIpl;t1ri:ve fietait cnm- MLrcial and office development are frequent partners in business develop - m pmts within activity Cenlers Both F,envral ca'eg epic, uac-n share locational raeeds and often probe mutuall,, sup- portive. Residential develc%ment may also back up business, providing an Immediate community of inlcre: t while benefiting from the carvenience of services close at i' unci In order to coordinate husir;s activity with supportive residential development, specific areas should be set aside and their development carefully guided 'f wo Activi- ty Centers have b.,en d signatei.: Down- town and Northga(e. 3. Pianr for Susinoss and Industrial llovlow Aroas The individual business ar.1 industrial preserves and review areas see N13p 1) ialrlicatc rccoatimendataons ler future business development. in San Rafael Projections are based upon desirable rises for specific sites. in all uses more detailed economic analysis is necessary to dietermine specific deta its of development: accurate projections of employment; office needs; retail commercial space; and industrial desirability. Specific plans a. Existing Industrial Preserve The Existing Industrial Preserve includes other intermixed uses, but industrial use is Predominant and it is located in a broad area surrounding the intersection of Routes 17 and lot. The Existing Industrial Preserve does provide a large economic base for San Rafael. The preserve's inportance to the City rests in its high degree of employment and the taxes it pays. This crossroad area represents one of the largest industrial concentrations in Marin County. This preserve creates traffic problems for the East San Rafael residential neighbor- hood, and with the freeway, serves as a harrier between that neighborhood and the service: of Downtown. The .Existing Industrial Preserve is readily visible from both major routes through San Rafael. It is also visually dominant in views from hillside residential developments in the San Rafael Basin, Since this area is so important to the visual image of San Rafael, its blighted appearance is in need of public attention. A detailed economic and design siudy `z needed W address this prob"ein. Certain facilities are outdated, ard may lie replaced with more efficientand visually pleasing; designs. The road and service system of tt.is area merits study in order to investigate Nnportunit.ies for economies, which would permit the development of new properties and the closure of unnecessary streets. b. Highway 17 Entryway Review Area The Highway 17 Entryway Review Area will be an extension of the existing industrial area. The review area consists of the area on both sides of the freeway, encompassing the ridgeline on the south, and bounded on the northwest by existing; industrial development. The site south of the Freeway is only partially developed. From the freeway there extends a broad flat plain to the base of the ridge. The ridge is itself steep and serves as a visual boundary to the southern edge of the Planning Area. The physical structures must be accom- modated to the slope, without attaining; such height as to obscure the ridge line. The siting of development at the base of the ridge, and the attractive landscaping of the flatlands, will maintain the open aspect of the entryway to San Rafael. Redesign of the area must consider visibility from major freeway routes; landscape screening should be considered in reviewing development proposals. c. Commercial Strips Commercial strips are not independent parts of the preserve program, but do exist in San Rafael and are worthy of discussion. There are three major transportation - oriented commercial strips: (1) The strip along Francisco Boule- vard consists largely of marine and motor oriented sales and service facilities. This area is partly within the Existing Industrial Preserve; it is best handled within these contexts. (2) Another commercial strip ex- tends along Fourth Street to the west of the Dowiatown This strip is commonly known as the "Miracle Mile," and merges into similar development in San Anseliro. Uses along the "Miracle Mile" are varied, with convenience goods, restaurants, and various shops interspersed among light industrial uses. The strip development generates frequent traffic interruptions as autos enter and exit private parking areas. It also blurs the western definition of the The "Miracle Mile" does provide high visibility for its development. Such strips traditionally provide sites for small businesses that need this opportunity for public attention and may not be able to afford higher rents Downtown or in a newer shopping center. d. Neighborhood Shopping Centers Neighborhood shopping facilities do not represent separately identifiable areas; they are important to the community as local amenities. An analysis of the location and adequacy of coif:•enience outle2s, sues, as supermarkets and drugstorez. was undertaken l -,y tilt* ('orsultant. Neighborhood Commercial study criteria and methodology are dir,cusscd in the Technical l',gpcn;) i x 4. Plans for the Muitl-Use ActIvIty Conters a. Downtown (1) The importance of the Downtown as an Activity Center. (a) Downtown is historically the major commereml center in Alar n County and still retains that relative potlon. (b) Downfav;n repre anis-; ,.n iwmst- ment for the City gild is residents, important to conserve and de v elop as a significant contributor to t1w, tax base. (c) Downtown provides a type of shopping experience including aspects of variety, vitality and scale not readily available elsewhere and important to the residents of Marin County. (d) Downtown is physically located in a setting that could be utilized in developing new visual effects. (e) There is a potential in Downtown to improve on the a risting variety of mixed uses, adding small scale enterprises, quality services, and non-commercial activities to create a commercial center geared to capturing more of the City's and County's comparison shopping dollars. (2) The Visual Asset of Downtown. (a) Visual assets M the area en- courage the possibility of preserving a well defined, pedestrian oriented, compact downtown for San Rafael. (b) • It is important that the relation- ship of the functional boundaries of Downtown to the visual (physical) boundaries be taken into consid^rasion, particularly where.. they do not coincide. (c) On the cast. -west axis, secnac hillsides at close ciis' r.e form the aisuai at pre boundary. Though, sent, both ends of this axis are ma:.ri j a"eiilfl!'i?`L'Fill, vi itis rn ly a few other use, ir',crt;li:ir.c'ti, t:titil',muse,! tK-, considered as Ilia !altormte laoui?..d.nrsr s s„ the Downtown c1cra,t^i' - psi `iii)1L= i3;: housi:ig within (d) Oil (hie tiori.li- :.(pith axis, Zvi ^cr i 3rd Streets are F,1:. lic a-,;; truffle ttr . r,^.,t` — and const lute fine so;a ',crn tura;;,­�o: the area. Scenic hil'sirlC . to Uw tw.ui ' i .1s,a add to the unifyint irid pleaLarit vs aa3 definition of the Downtown, The nil! y terrain to the north, starting rlght at Mlsswri Street, gives an improrsive definition to the northern creel of lhoQv a - town. (e) The visibility of these scenic hillsides and the preservation of this visibility in the future should definitely be a goal of detailed planning for the area. A strung, pleasant visual impact of the area will lac: iost if lieigy -.t limitations are not carefully liandled t; AL present, intense pedestrian activity on A( -.h Street stars at E Street and reaches its maximum density between C Street and Ojos, Potential exitAs for this area's becoliling in focus of revised pedestrian system interwoven with open sitting areas n_=xd greenery. (t;) It is important that 1) the freeway between the east and west sections become less obtrusive as a disruptiveelement in the integration of i cv;ntown, and 2) the Canal be treated as hart rff Downtown both visually and fi.mcr�-nally, thr Ugh it is not geographical- ly within the Center, (la) The section of the Downtown Activity Center cicated along the north side of Mission At'::nue between C Street and Bryn Mawr should he singled out in the Area Pu`,n prep::red for Downtown as requiring spocig deign comItLeration in light of the his toric and aesthetic value of the str ,:,11i es located :here. The priisibliity of substantial residential d.eyeloitrment Downtoipm exists in the Downtown Area. Tl.e physical form of this houingmxtsst be. supportive to the scale of activities- of ,iris center. Multi. -story building beight:, should be permitted, but buildings she uld be designed to provide unobstructed vices o` the surrounding hills. Verticai zen:nn should be permitted. This cou'd lila\,e ships at ground level with offices and residences above, thereby encouraging mi.;:ed uses on a single site or within a :tingle building. b (4) The Northgate Activity Center requires a considerable degree of unifica- tion of presently disparate elements to form one integrated center. The enter - change of Highway 101 and Freitas Parkway needs improvement for both pedestrian and automobile movement The retail commercial activities of the shopping center accomplish two purposes: 1) providing; community facilities and personal services to area residents, and 2) affording regional comparison shopping, Th -e Center of activity is the Northgate No. 2shapping area (the Mall). There is little, if any, relationship to the other segments of the shopping center and practically none with the Civic Center. Improved circulation and some type of shuttle service must be introduced to alleviate this problem. An urban design plan and phased program might afford greater concentration of development on the existing shopping mall. New structures and hard and soft landscaping could facilitate linking of the three centers. Present liabilities are the large barren a.;phalt areas; these could be modified to produce-nxeiting urban environments, e.g. aesthetically pleasing urban spaces -- essential for quality retail and office ure.ls. Marge-sca.e office complexes are attrac- ted by the amenities of new urban centers, e.g., Fireman's Fund. Access and vrsibili• I can be guaranteed by the dei etopment cif specific plans. The retail development to already available, providing an attractive employee environment. Large numbers of r,L'.0 offic. workers would have to generate additional demand for more commercial construction. Regional comparison shop- ping and large scale entertainment facilities will then find a growing=, market - ment which provide local opportunities for employment and which reduce the need for people to commute to San Francisco and elsewhere. Policy Z: Create a positive atmosphere which selectively encourages business to locate in the community and enable it to flourish, permitting local residents to live and work in the same community, providing a wide range of occupations at all pay levels, and broadening the City's property and sales tax bases. Policy 3: Sat aside areas reserved primarily for business activities, where business is the dominant use around which supportive uses may be permitted. Po?icy 4: Permit the continuance of convenience stropping facilities in existing residential netg borhoods and plan for new neighbor- hood facilities where growth and develop- ment warrant. Poy,L.y S: Harmonize style, intensity and type of new cenimercial or iridustrial construction with the natural environniert and respect the unique nce-ds and features of each ;ire.r Polls"cy 6: trick-rtalie lymitive programs to sup port older bir,iness are >> to ensure their cc:nt.:lued vitality BUSINESS AND WDUSTR1AL RWiEi,9! AREAS Policy 7: ilav rronize new developirerit with the unique natural c nvirorunent of each revww area. Policy 8: Set a high level of design standards for each re%wv' area, with special considers- , �•; ,-y ;h,vr, t,uii for elle visibility of each site from -- �-- - -� ..-..;." � ,��� _- „-� . • `�"� '�,�.,� ,�' ' — e`s.ttil:er., in the vicinity and community. r^ t : a/"J .•.: •,:-+.; -�� !;'y .;.�'�.�•; ti{�•-, i••,rv'V ,� �� ,y,,,.� i il�js�I'�T _ ;,, , rl,.-�/Y r ..,1-�Nt�i\ ,:'l. :�•i tt v' :{'rX%,.� f!i',tVY�^" �'i, ,•'�^. L41'fawVr'A ,• .N .. e �t r I i/wJ V `, +�"��,-^— I .. ti `.til`r*\'.a�!'� `.\C 1.�,`,, t{. • j':.'�Z .-v! . �'�i`I; i.t i -i tJ�� •I I 1, 1"'�f _ _ <., .� \.; ,� , ',he;! Rcdeveiopment Agency has vast 1?i)it'ei:�.4);'e!i'aii tillG an'@::. It 1�• In i) pOSition to efCi ctu�ttc C'V/?fe ptne'iil in the Down- town Area by ireans of formulating and irnp.TlNnienting a :specific pian. b. Ncrthgate „ Northgate is a recognized regional shopping center. The boundaries include not only the retail enterprises, but also businesses such as medical and law offices and residential apartments, t 7. f "lite boundaries of the Northgate Activity Center, illustrated on the Land Use Policy Areas Map No. 1, extend along both sides of Highway 101, from the hill north of Smith Ranch Road to the Civic Center. Q2 The Northgate Activity Center is large and varied both in present uses and to a degree in land development potential. Hills provide pleasant vistas in three directions, defining northern, western, and southern boundaries. The hills overlooking the industrial park to the north and south provide view sites for apartment clusters. (3) The eastern boundary of the activity hater is defined by Las Galling Creels and MeGkiab County bark. A cvmWNrnbe v1E'I%d'fty d i1 ohm hwd 6988 i0 rept—mented .wtthtn the center. IntensVi- �:a�tion of use zhould be encouraged selectively on the basis of quala+', and maintenance of propei,,y phased provision of ser vita.. Integrated malls, lilazas, recreation and park arc.s:, shoitid be eneuurat cd by creative zwrangenumt_, of parking facll, ties and structures -- introduction of elephant trains, landscaped patliv.zv., and lyetter accoss to the Co. is Caltin-al Center and the new County parte facileties The Cn :: Center serves as a seat of County Government and provides recreational and cultural attraction. The Memorial Auditorium represents a meeting place and entertainnnent center for large groups. The unique architectural character of the Civic Center is a definite asset and tourist attraction. The Activity Center's de- veloping industrial park demonstrates the viability of such development to San Rafael. It provides tax revenue and broad variety of employment A variety of multiple residential units -can be integrated into the total context of the Multi -use Activity Areas where they can complement business development. B. POLICIES The following policies underlie and shape the character and orientation of Citywide Business and Industrial Development. It is the peHey apt the City of Sm Rsfn7d to: 6EMMM Policy I.- Stimulate sStimulate and give preference to those types of economic activity and develop- Pof cyAlIF: di Prevent the ent rnachme nt of new retiiden- vai development into the Business and Industrial Review Areas. MULTWSE ACTIVITY CENTERS Policy AW: jCl Prepare a specific Area Plan or Redevelopment Plan for each Activity Center, precisely describing the mix of land uses and activities. Policy 406 /! Support and encourage the concept of preserving; buildings and areas with s1wi,tal and recognized historic or aesthe- tic %slue Policy in: 12 Capitalize upon the unique environmental assets of each Center. Policy do: 13 Consider the provision of intra -center mobility without the use of private automobiles. Pollcy jo: /1 Set desigr: restrictions as to views and aspects, physical appearance, height, bulk, and provision of open space areas said landscaping. - - Paver it. 5 - Within the Activity- Centers, residential deve!oprnent should be compatibly de. st led to sn;pport office and commercial user r1l LPAPLEMENTATION 1. Citywide Implementation Programs shooed be aimed at mair the present values of busine:as ente and attracting beneficial new d1 ments. A major concern is the employment new businesses %vlll gE The difficulty in controlling employ that simple zoning and subd controls are hardly specific enougl must be manipulated is the bi atmosphere of the City. The fol programs are recommended: a. Specific Plans The formulation of specific plans City and Redevelopment Agency beyond the scope of this General PI should include detailed design st'ue economic feasibility studies. The st character of each Review Area or, Center should he determined Blur preparation of specific plans, al some flexibility in land uses slit permitted. These specific plat demonstrate, to potential burin lerests, the sincerity and captabil the City, and the extent to which t will suppport and maintain the v and beneficial enviromrient of the Areas or Activity Centers. Sputa. enable the City to prP>scribe the: cit of business activities; %,:anted, and e ment profiles needed, to nemmpl City's objectives r•egarwnb a pol and ornployment iili:': m San I Specific Pl.ins should be supdut necessary prograrnined improverr utilities and services. b. 'Lolling; :ipeciktc : e,i, changes for Revie . and Activity Centers w-111 ,e recti assure desired tacvelopment. 2. Mulfi-Use AcKvity Cent plementaticn Specific Plans and Programs for tocrn a. The L- edevelopmer-t it Secs process of conducting, econoniie fel; stud es. Once then -e ure ac:n_lrap viable uses, spatia'_ requiremer velopinent criteria for commercial and residential' construction, an patibility and interdependence various uses vAll be cI,lfiri� i. b Detailed design pfans will park, pfa'aa and public activity Permitted building; materials and b developrte_rit intensity will be spec assure cet;rdination and integratioi various individual efforts of I investors Pedestrian scale v eu'pli,tsized. c After the preparation of ; planr'l for the I.1owtft;vn Activity followed by adequate: public he, these plaits anti policies will be re and adopted. The Redevelopment will than assemble the necessary to permit large scale development will be subject to strict controls b. standards anis criteria, includi regLurentent for full provision of an necessary to assure quality develo d Public improvements programmed to coordinate with c ment proposals. 3. Short Term Implementath Northgote Until such tine as specific area pl, prepared, all new development pr will be evaluated on a case-by-case Commercial, residential or mix development applications will be to submittal of precise plans i planned unit development). E zoning will be supplanted, witl Activity Centers, by a review pros environmental impel rep u --t prop 7 to evalua2hm oY thm auras willib on consistency with the Genr-ratl PI its adopted policrea as ;aelll mlatiorship^s beti%een tarojxxsetl w the existxg and d men t i n the bal arice cif the :'ici., l6ti t y r w s ! z•RS c •t'V r1 rV& s, N' , , ,4: T�viry �iPYi �� P�tM�l.y - > ' G r>; h;,1C EVer f! 55/„49;:;/WL do PA IuTRlle't:Jl�; C G'f; 'G. /}Cel' pill e i Ir o o.■ tf Q v r;�'•�' �,� , fir' s ., dl `I � c: fes/ f', , _.- '��•�� �Lj�/=y��• ' �. �'✓�-�':•I Y c, t ,r i i 1 �,��1+•.: = r `A b� �j � lr �,,,r,_.-� t �i! Vie. .... �'�r rte. .., j �.A` :` � J�y� 1�"�' - •,.....� J�-�r,•:'�j .,°• .:T ` "'ter ���. , � `� -- -' �; _ ...%'. :I p ' '- - r ` 'fit ' � '• '" 4% f � � d t /� ` d /.79�' •• 1, L '� t /\ �, C��\\. -_ a � - S ,7 Wil` •S. � t `i`., F•!`�/• -�J'12 �ti � �•�, ••••'` I �'j u. .■ �J � (1 �� • � J nom' J Jn •rte `R.' rr�u �e_r �s T `, ::> 'f ` �o. �_ ,, �`i'�{°^ S• i. •.J 3,� � •./ter•.` r} Y a L � �� / add' �" .��^•-'� :r• _ _ ';� _��i' i' 1�J v„k. 10. 8 f� � ! Y�• tel• � f) 't.f A ..52.�7.w] .•\ i � ..t.f �% • ` a r , ,F _",tiYi„F t i :c . (7 r r+' Q � ` j y ,� ��` J rte• ,.,,- . � � �' � ' „t ��;�" • �� .. ;� � , , .. `�,. �J � 04 • t ` I E' a ,4 `•'�r ��m•te,``' _ 'r}r ' a ..v_St'� ,/�q - _ � - r• _ :, ,rte" ^ a. } `• 2 •i Q � �• m Q Wr W s H a a u !,U o 0 o 30 eo O a� W Z 59 0 0000 '■ -� h- u OC W o. W W W J � s O cr. o V L6 'Q en p � R•- � � wr cl .. } C1'11 APTER 1,41 b+liRODUC'1•ION -lrbao:lzed areals Of San Rafael swing :a I'+OU4 I01 in an irregular pattern fled nnii r1,7n7inaied by topographical 1 g�•al���ira3 conditions, The spine of ;an aeu%Aty formed by this freeway ;resents Oise of the most dominant n ri7acie eij.°lnents of the San Rafael Jnr+Ing 1. refa environment angling San Tlafacl to the East Bay is I;l_�lznhond-San _RQfael Bridge and a ori stretch of Highway 11 which -mil7ates at its juncture with 101, .mediately southeast of the Downtown. C d . b _ _.LI -S. c6.ereld �ddii'8�• Yhe widening of Highway 101 from the present six lanes to the eight lanes as already established in the freeway agreement will not provide a solution to all of the traffic and circulation problems in San Rafael. However, many of the actions that can be taken at the local level are so integrally related to Highway 101 im- provements that they cannot take place except in conjunction with such improve- ments. Key problems Of this type include freeway interchange improvements, local and road connections at Puerto Suello between the San Rafael and Las Gallinas Ba:Jfns, improved capacity for transit vehicle,, to serve both commuters and anovG,nesit to and from file bi: iness and inciivarial areas Of San Rafael irnprove- ineazt in east -.nest access between major areae of the CAA chat are separated by llirbaway 1�J1, and 4-isual improvement of tr e. City's as vie:'rcd from highway 101 alongFrancis,::oBoulcvard Therefore, tint: otlr enzt.ila:;ia :;;zs�ulrl ice placed on n?.nk-ing C.JEi i effihrt Passible to expedite t•p; vfieleiling of 11if;111 ay 101 to 4 lanes within San Rafael. unique aspect of the existing circulation stem, howe-mr, results from the strong Mural barriers that separate the two ajar basins of the Planning Area and the mall residential development RZostca these ted On .at or geali-y .,loping, lan lrr'iers are steep slopes and ridges, but ater barriers also occur. In most cases ,is .rcc_isAs in self-contai.-,ed development ld a Ircal street pattern which garalai?fits 7e irits�n iioI through traffic and thus :s den.ial retei:iy:7?er- res. san te..z. A %ii;la proportion of the City's amihf- five's en a deadend or ltzop street, ,a• on a r,treet connecting to one of these fifes. t;laAs. ri,e T ansportation Element of the � �aieral Ilam identifies tlw char: es and rdciiticlri to dais present :system that must u+.cur to attailz the tjaals of the: Purl in terms 4 f tfie projected urban activities exlieeted by the 1300 to fret gats:. Major r:ra:u:, ;?f co,-Le.2r•n includie a Safety Klement fc,r (err:,: rr,t:nCY evacuation, elate Highway 101, tli:e east -west traffic corridor through 11ie I)rrr,•ntown, loLal and com ynuter public transit alternatives and changes in ttloroujif ares required by the General plwu . At the present time in the Oar: Rafael Planni?zg Area, R51"e 131 is the only direct liriis bet;via the San Rafael rmsin and the Las Gallinas Bnsin. The Only Existing alternative's (via Point lion Pedro or Ni�casio) involve `c;anY Mil •3 of additional travel in the event of a major disaster such as a fire or earthquake car even a highway accident, emergency access between the two basins or evacuation vader present circumstanees would be impossible. Even if Route 101 were not severed or physically bloclied, the amount of local traffic tizat would reed to use the hil hway during can emergency could not be handled by the existing entrances, exits and freeway lanes. Both the highway and local streets connecting with it would quickly become overly congested and ?,,crelessiy snarled. Tim topography of eastern Marin dis- courages the construction of another freeway op a separate alignment. In ;addition, the cleierrninatioa7 of many residents to preserve the natural environ- ment by discouraging the pollution caused by automobiles wherever possible magni- fies the dilemma that noute fol poses. Since the Balanced Transp irtaton Study clearly indicates that Hig11way fol cannot 13J, itself serve tiic projectad transportation growth needs of the Alarin Corridor or even the San Rafael Piarnng Area, the intent in this flan is to define the appropriate role of Route 101 in an integrated trarlsIPOrtatler' system which incudes buses, ferries, possibly alternative rapid transit routes, and alternative connecting routes. * 1. stal'a Highway DO I liig h ay lot is the only significant route hrJ-.ir;19 the communities of Sonoma County find eastern MUM County with San n-ancisco. The grovrth Of the eOr"munities in + (iuihties corycrjmit<nntly with the gro:vtlz of business opportunities in ban )r1'rancisco has led to greatly increased wage of Route 101 to the point wahcre it is no;v regularly congested at commute times. Alternatives to the usage Of pr►vately owned autcanobiles to L;erve this transportation corridor have only recently been offered. The Golden Gate Transit District u3fers commuter bus service to Sart Francisco, ,]though the buses too use Route fol, and the District also offers coMmuter ferry service from Sausalito (anti in the future will rifer service from Larkspur) to San Francisco. To ease congestion on Route fol the State Department of Transportation is now widening the highway to 8 lanes (from 6 Innes) between the Golden Gate Bridge and the City limits on the south, and tliraugh Novato on the north. This leaves the San Rafael segment as a deficiency and bottleneck which detrimentally af- fects our entire City. * See Balanced Trailrportation Program, Phase 1, 1N0; and Phase 11, 1572, Maria CWMty S. public Sdetr R0065 As described in the above section, Route 101 is the only significant lints between the San Rafael Basin and Las Gallinas Valley, and it could potentially become inopera- tive for emergency access or evacuation in the event of a disaster. There is Only one alternative alignment, however, which can be used for general traffic movement without disrupting existing neighborhoods and running vehicular traffic offer rldgelines desired for open space. This alignment is the parellel extension on opposite s4des of ilighway 101 ever Puerto Suello lull of Lincoln Avenue to connect with Los 10nchftos Read or Merrydale Road and of Villa Pwenue to connect with San Pablo !Avenue other routes con- nectitlG; the two tla:llrls in the Planning Area should be designed fear emergency access only - ed: Correction of emst-west traffic deficiencies through Downtown- Throagb traffic should be eliminated from Down- town shopping streets. A. circulation system for the Downtown should seParate through and local traffic and provide for an even traffic flow with a minimum of interruptions. b. Provision for a reasonable atuouht of parking and convenient Pedestrian circulation within the DO' mtown area. C. Utdi,.ation al the Wlrfla�l right -of - way (extendingr from "A" Street along the north stile of Albert Park S,Outh to Rellanh Boulevard) as a new arterial. This ve Av roadway will serve Downtown traffic t desiring to move southwand VA ffig' brays 101 or 17 without adding, t ;o through trz`Aic to the Second wid i-1eihcrton interchafC"a; recess to ;he f reewaY " 1111 be In the vis Av Of F'ranci_ t,.O E€:ill.¢ v and V :sst and II _":zt . Boulevard. NoralLi zi1!rcl tsaff'ic from Ul.,.11- ways to 101 •ni d 17, tit l;rllam, rci;h destlrati(irs �a^ :t cif Nift;hway 101 provided with yin altOrMI-c, to 1k1� l nli�f_: +rxd Lrwin interchange .3. Downtown 0at:ts1001`1 The present system of ramps serving both Highways 17 and 101 pei'niit, a d in some cases even encourage traffic into the heart of the Downtown. The blighting influence of this traffic is readily apparent and mist be regarded as a major determinant in prompting the Downtown Redevelopment Project. The major east -west traffic corridor in the San Rafael Basin, finking route t31 will San Amehnoan d Other eommuilitics to file west (from highway 101 at Second and Third Streets via the Miracle Mile to the hub in San Ansclmo), carries traffic loads normally accommodated on freeways• However, only a short stretch (Ro'Ute 17) has been designed to adequate capacity. The Second -Third Street couplet which --atca>c no the middle section of the yond its ,sulting ' Fow-Lh, •venting lly. This terferes 4. Pubfic yransit Despite its p(,tentially hey role i conserving Sail ltaflsel's resources an natural envircanient, tr3.`isit stry cc fc the City is still in its i-niti31 develop -lel phases. As in the case of highways an thoroughfares, however, public transit ha heen the subject of intensives studyC both an inter -and intra -county basis for U past several ye:;rs.* *For valuable background, see follow" sources: suns�la:,~y, Ubiesultar— 5 Ropar Concepts and AtterGativeS, Gordan Go Bridge, Highway and Transportati District fA Tranagartation Plamnin Mar Mario County planning Departmt Marin County%vide ?Inn, Maria Cour. Planrung Department Propwed Regiot Trawportz6ott Pian, Metropolitan Co rr"- ion prevent available service is provided two six�c"I thss rzeL,: I) the G4_'den G Transit District provides prim,-r.L_* tra bay con)muting, to and from NI X^ by al:r3 fern' C.11C C atialn it p1(.` alt hour F,; alriw, u f,;.ai:13 I 1'a1h.+ia L�%s'LrI�S �:r G+ th Marin vi-ithin Corintyli."MIce only `by` -IMC 11 an off-pWalj 17�_.ar basis buses fro-rn Golden Claw Transit D..-Aric-0. Central iO 117^: i37iiV enviror11n1on'al 1 cerrv, vrti7 OW'.. i s°,a;Wttz pro:r cti:�l':s of Geill,ral plwr; i ; the develfw.m. int coynrau1 Er silt: ly: •;y'sta:i71. It i€• I1Tl� rc that p?ui is plll,; an incrcas!93 as the ab -,U i"° U1 expand F,i f;iiat Sir 1 , capacity i:: lmn:.te^d to a pec: n =lacy 13':.:1 of Mo Iailc: , C1S:Ci as to tiro is i:7 Z.0 CO, a{tf:itlate CiGrts"�t'�«:.Z17 �rL't'i4...v ,a•.�• ream ci7e:7cls:'d ti11t, at least ini.,aiir , t asci in,L, this ro`e, a11d that. 'N"c",1 the lane;, are adds d to RLPate 101, esnlallaa laced on ade(W.ate rrovisi1'n fvr p transit. faciiiti Gately, however, the Northwesttsrn le Railroad right-of-way could re- Highway 101 for this purpose and de the basis i.vN.;essary for a rapid -it system. While buses may serve `alb for some time to come along usive right-vf-way, in the final sis it may be necessary to convert to form of rail rapid transit system. r transit can help mitigate the se effects of congestion on Route 101, old be emphasized that transit., when ively integrated into the plamung as, can also have a positive influence nul,it.ing dei+elopmenl in the Down- lnd Northgate Activil.b' Centers. it is its purpose that ultimately rapid t stations are proposed for Bellam yard, Downtown. the Civic Center - gate shopping area and the develop- mv%e l bti Smith Ranch Road, iprehensive public transit zystem d include fast and pleasant move - of persons within the Downtown and to Activity Centers This could ._. form of mini -buses, elephant or moving sidewalks. The role of systems is to make each Activity r a coliesive unit by linking its major ty clusters, and thereby reduce the Aive influence of unnecessary intra - r automobile movement onic 04tharoys a and rural landscapes, panoramas slleys and bay, silhouettes of lines against sky are common scenic -uses of many of San Rafael's roads. a views are available from many ing road categpries, ranging from 101 to privately maintained service and thus these vary dramatically In s of both the .landscapes and the Is at which the viewer perceives c highways are not recommended for afael in terms of State recognition of nations. However, special effort d be made to preserve the scenic icteristics of such roads as Upper ; Valley Road, North San Pedro Road 'oirtt San Pedro Road, Wolfe Grade, rt Dollar Driv and new roads -ucted near the Shoreline in East San 4. Policy 2: Gear. transportation programs and actions to implementation of the City's land. use and growth polibiea as set forth in the General Plan Policy 3: Maintain the protected neighborhood character of residential areas, yet provide for public safety concerns and transpor- tation. Policy 4: Wherever possible, facilitate through traf- fic flow with minimum adverse impact on the environment and economy of the City. Policy 5: Encourage the improvement of all deficient City streets to acceptable standards. Policy 6: Develop bicycle paths and pedestrian trails as significant elements of the City's cirealation system Policy 7: �ftrsue aggressively the full development to 8 lane:, of the Highway 101 transporta- tion ik[roh�rn✓Sfi Polled 8: Encourage local public transit systems to provide an alternative to the increased use of automobiles, to offer mobility to San Rafael residents and to reinforce the viability of the Activity Centers. Policy 9: Encourage public transit systems to provide for the needs of the comuting public by establishing routes into the major population areas of San Rafael. Routes within San Rafael should be subject to approval by the City Policy 10: Integrate where feasible the local and commute transit systems 11CIES Blowing policies underlie and shape aaracter and orientation of the lation Element, Scenic Highways int and (in conjunction with Policies pter 1II) the Safety Element: .+ct the natural environment of the alien low-ating transportation cbrri- and review all thoroughfares, ions or improvements in terms of mpact on environmental va Lzs. Policy 11: Encourage the evolution of the present commute transit system into a rapid transit system and leave available for future consideration other possible modes of transit, such as STOL, helicopter and additional ferry terminals. Policy 12: Assure that the Northwestern Pacific rights-of-way be preserved for public transportation systems. 'a" at f/n C�.;,yl,,,[1 /.'•f LB'Yv+'1•!/.''lr.•t''%� L�u4 / sa" an .a Policy 14: ` Protect the naturaj • epvironment and residential amenities of San Rafael through preservati8n of local; scenic. routes. Policy 15: Undertake urban design studies of the Route 101 and 17 transportation corridors and enforce regulation of signs and other visual intrusions to provide a suitable foreground to the panoramic views available to both the resident and through travelers. Policy 16: Make every effort to protect the scenic characteristics of local roads and propose the initiation of studies of the visual aspects of San Rafael from State Highways 101 and 17. C. IMPLEM ENTA TION The programs an f strategies presented as a part of the Transportation Element of the Plan should be initiated as funds become available. Major changes are shown on Map No. 8 and referred to in the text below by corresponding letter or number. 1. Public Improvement Program Use of a comprehensive Public Improve- ment Program as a necessary adjunct to the General Plan. Such a program must address both problems raised and solu- tions recommended, and articulate these in terms of cost estimates and a system of priorities. 2. Redevelopment (See Map No. 0; Items F, G, H, J, K, L, M, N5, N6, N7) Have as a primary strategy for an improved future transportation system the use of the recently instituted RQ -development Agency to program for the improvement of the east -west traffic corridor through Downtown San Rafael and for improved circulation to, from and between those portions of San Rafael lying on opposite sides of Highway 101. In the Downtown area the Redevelopment Precise Plan should a. Address itselVo correction of east -west traffic deficiencies, to separa- tion of local traffic, and to improired parking. (Map 8,F) b. Utilize the railroad right -of -may for a direct roadway connection from "A" Street along the north side of Albert Park to Andersen Drive at Bellam Boulevard. ' (Map 8,G) C. improve Bellam Boulevard from Andersen Drive to Francisco Boulevard. (Map 8,H) d. Extend Andersen Drive to connect *With East Sir Francis Drake Boulevard to provide an alternative to Bellam Boule- vard. (Map 8,J) e. Complete the major road network in this area. Bellam, Kerner and Francisco should serve the uses in this area. The Bay Shoreline drive and public water -oriented recreational and scenic use facilities shall be located within 200 feet from the face of the levee. f. Actively pursue improvements to interchanges with Highways 101 and 17 to • facilitate improved circulation within San ,Rafael and the best relationship to public transit. (Map 8, Nb; N6, N7) d 20 3. Bicycle and Pedestrian Trails Plan Prepare a plan, integrated with the County's plans, for a community -wide network_of bicycle and pedestrian paths. These two trails systems should be separate from each other, and should be designed to minimize conflicts with vehicular traffic. The routes selected should be chosen primarily to provide access to important parts of the com- munity such as Downtown and Northgate as well as to major facilities such as schools, parks and neighborhood shopping centers. Additionally, some routes should be selected for their recreational or scenic values. 4. Highway lei (see Map No. 8; E,NI, N2, N3, N4) Make every effort possible to expedite the widening of Highway 101 to 8lanes with related improvements within San Rafael. Work with the California Department of Transportation to ensure that maximum use is made of all new lanes on Route 101 to facilitate public transportation until such time as an alternate right-of-way is established and in use. Provide ample planting and noise barriers and any other improvements possible to bring about a finer mesh of freeway and urbanized areas. a. Work with the California Depart- ment of Transportation to exert all feasible effort to secure the connection of Lincoln Avenue to Los Ranchitos Road or Merrydale Road, and Villa Avenue to San Pable Avenue to relieve Highway 101 of local traffic movement between the Sai Rafael and Las Gallinas Basins, and to secure the improvement of the inter- changes at the Lincoln Avenue -Villa 4:onnection and the North San Pedro Road connection. (Map 8, E, N3. NO b. Work with the California Depart- ment of Transportation to insure that interchange design and capacity reflect the land use and intensity recommenda- tions of the General Plan, capable of accommodating public transit. needs. Continually strive to secure improvements to the design and capacity of the three interchanges serving the Las Gallinas Basin and to promote early construction of such improvements. (Map 8, Ni, N2, N3) 5. North -south Connectors (See Map No. 8; A, C) a. onnect Los Gamos Road. (Map 8, A) dZu n. C nnec� Civic Center Drive with Smith Ranch Road to relieve congestion on the Redwood Highway frontage road and to connect major public service areas. (Map 8, C) 6. East -west Connectors (See Map No. 8; B, D,) a. Further extend and improve Smith Ranch Road to provide access to the new County Park. Subsequent extension may be needed connecting Route 101 with a new Ferry Terminal at Gallinas Creek, should that facility be built. (Map 8, B) b. Widen North San Pedro Road to 4 lanes from Highway 101 to Vendola and provide full consideration for bicycles. (Map 8, D) C. Point San Pedro Road should not be widened to 4 lanes beyond Riviera, but it should be improved to Biscayne Drive. The balance of the loop between Biscayne Drive and Vendola should remain 2 lanes to discourage through traffic and exces- sive use of this scenic section, but it should be improved to a standard 2 lane roadway with full consideration for providing for bicycles. (Map 8, O T. i,oc al City Streets Encourage the improvement to City standards of those streets which were not origii'W lly constructed to such standards. financing them through the creation of local brc.-nefit asaes.�r+ient dAstricts 8. 1''ublic 'Transit (See Map No. S. Rapid transit routes, stations, ferry terminals) a. Rapid Transit Caoperatewith regional efforts to upgrade the present commute transit system into a rapid transit system. The ultimate introduction of rapid transit is regarded as neceutaryv oPment of thesyachieve sal Plan Goals, tem stem should Precise �relop be monitored in terms of the adopted Plan. adopted Pisa. b. Norlbweotero Pacific Rigbta - of - Way Rawr a the Northwestern Pacific rights - of way for roadway, transportation and -or transit corridors. Interim use of these rights-of-way should be for various types of transportation provided no action taken would preclude ultimate use of these rights-of.way as part of a rapid transit system. C. 3 'system provide a AVG* with r Pumbodits to convenient and efficient bus system to serve+CWatntlywide and commute transit and the San Rafael Activity Centers. Encourage additional means for providing convenient citywide service to the neighborhoods. Equipment used within the City should be in keeping with the physical capabilities of City streets AExtend Sa ador Way to s G os Drive. l3 Connect hl ual Freitas Par - w. with Butterfield oad (4 Extend Ri ewood to conn t Wi.Jh Manllal Prait Y7o.•i, ur�.r no,e 9' Public Safety Routes - (see Map No. 8) The route shown on Map No. 8 (the connection of Lincoln Avenpe to Los Ranchitos Rd or Merrydale Rd., and the connection of Villa to San Pablo) serves a dual function as an extension and connection of mayor local roads intended for daily automobile usage as well as an emergency route should Highway 101 become blocked. to. Scenic Highways a. Have the Redevelopment A undertake a study within the Rede ment Area of both the visual a�scl visually polluting aspects of Highwa and 17 and of the City as viewed from highways. Based thereon the Agenr City in cooperation should endera promote with the California lirparin Transportation a joint progran'i t i ar the visual appearance of and fmrn primary access routes to San Rifat b The City should assist imi hoods in acquisition of scenic• ca.,' and rights -,if way or in uldle i r techniques in protecting ta�iial,: views available from local road., listing of techniques in the Cha Implementation Section and the detailed explanation in Appendix t night Drive to P Pedro Road. his could serve wood Areas ld a disaster save PedroRoada gtheBayfrontof Knight Dri e. Should condi ant, at a later to this could die e InExtend art of a loop bu route. Extend B cayne via We g cock Gap to N th San Pedro E would serve t Peacock Gap uld a disaster ver Pt Son F d. to. Scenic Highways a. Have the Redevelopment A undertake a study within the Rede ment Area of both the visual a�scl visually polluting aspects of Highwa and 17 and of the City as viewed from highways. Based thereon the Agenr City in cooperation should endera promote with the California lirparin Transportation a joint progran'i t i ar the visual appearance of and fmrn primary access routes to San Rifat b The City should assist imi hoods in acquisition of scenic• ca.,' and rights -,if way or in uldle i r techniques in protecting ta�iial,: views available from local road., listing of techniques in the Cha Implementation Section and the detailed explanation in Appendix t EN SAN RAFAEL CITY COUNCIL C. PAUL BETTINI, MAYOR JOHN A. MISKIMEN, VICE -MAYOR FRED JIENSEN LAtdRENCE E. MULRYAN JACK G. NI' 14ILLIAM J. BIELSER, CITY MANAGER o THE PLANNING COMMISSION OF TF.E CITY OF SAN RAFAEL ALBERT J. BORO, CHAIRMAN JOHN A. STARKWEATHER, VICE—CHAIRMAN BEN C. ALBRITTON DOROTHY L. BREINER JAMES DOUGAN ALAN KAY DONN E. NISSEN HERBERT G. HOTCHNER, PLANNING DIRECTOR The Planning Commission presents this Genemal Plan Report, with acknowledgement for the ass is tance of the City I nter-Depa rtmenta 1 Task Force and the Planning Department staff, based on investigations and reports submitted by; Duncan & Jones, Urban and Environmental Planning Consultants; Cooper -Clark Associates, Foundation Engineers 6 Engineering Geologists; The C--tizens' Advisory Committee for the San Rafael General Plan. Due to reproduction costs, the following background maps, analytical data, proposed procedural methods and ordinances are not printed in this General Plan Report but are available for review in the Planning Department, Room 302, San Rafael City Hall, 1400 Fifth Avenue, San Rafael: to the City Council for further public hearings. All individuals and organizations wishing to ask questions or present comment are invited to do so. When possible, You are requested to submit your comments in writing by noon Friday so they may be reproduced and distributed to all commission members. Those who do so will be called on first at the hearing. 'The Planning Department Staff will be available to meet with organizations to explain the plan beginning July 29. For further Information phone the Planning Department at 456-1112. Herbert G. Hotchner, Secretary, Planning Commission APPENDICES MAPS A Geotechnical Aspects of the Seismic Safety Element 1 Preliminary Geoloqic Map B Mammals Found in the San Rafael Planning Area 2 Relative Stability of Natural Slopes and Their Habitats 3 Boring Log Locations C Birds Found in the San Rafael Planning Area and 4 Potential Ground Response During Major Earthquakes Their Habitats D Rare, Unusual or Endangered Species of Fauna. 5 Potential Geo -Seismic Hazard Zones E Unique; Rare or Endangered Species of Flora 6 Zones of Potential Flooding F Open Space Preservation Techniques 7 Seismicity Map of Greater San Francisco Bay Area, California, 1969-71 G Population and Employment Projections H "neighborhood Descriptions I Neighborhood Commercial Study Methodology;*. PROPOSED. IMPLEMENTATION METHODOLOGY e Residential Review Or"L'inance Including Slope Table A e Method for Establishing Residential Land Use Potential for Major Undeveloped Areas e Residential Development Review Criteria ® Heritage Tree Ordinance e Administrative Procedures for Open Space Easements and Scenic Restrictions PUBLIC HEARING SATURDAY MORNING d AUGUST 3, 9:30 A.M. In the Council Chambers. City Hall, San Rafael 1400 Sth Avenue the City of San Rafael Planning Commission will hold a public hearing on the San Rafael General Plan as revised by the Planning Commission. This will be the final hearing by the Planning Commission prior to sending the plan to the City Council for further public hearings. All individuals and organizations wishing to ask questions or present comment are invited to do so. When possible, You are requested to submit your comments in writing by noon Friday so they may be reproduced and distributed to all commission members. Those who do so will be called on first at the hearing. 'The Planning Department Staff will be available to meet with organizations to explain the plan beginning July 29. For further Information phone the Planning Department at 456-1112. Herbert G. Hotchner, Secretary, Planning Commission T r c M u 5. � L 41 o 0 S YY N N .� u 0 4 c u L o u 64 a�J Q l44 a/ S4A �/ 6 Jf Gi d � •K K � � � it � • - d ' Jars 4a�4° i � ..� � � � � � ;� � � � ;t � � � A°Of. AVS, /�a �O/aaJJb /OiiJ. aaJ� ap/ 40/ � qF � � � � M +F � � iF if• � it - a6 aa�IP 0 y o o Go 'YA 4P 4 /J vP /aA w J.r 4a o °a 9P� it it • � � � � �F �F . � +� � � � � � •1t w ad, `3 ay s a a /•S�f/p /J�,a Y Jl 11-a o� JS�J` /s aJ aJ it � � � � � i- � �f it �• •K � � 7v 3 4PG 4P4 00 / rA0 /AO 'yOil w 'ia aJA � .0 rr r it x, r r � � � it •K" it nK /gad /P/, °o 4 .D ID a JAf A4 sad aJ4 A4 'o /p it qc O 64/4 it i x yr it O 40/ s/ 09 1s Q N N N � v K Q to 3 C O E O J W w Y Y N K ° C ° c ° C ° c W LLI K K -C C C C N u N O M O C4.0 M O• fi J O K Z Q L L C 1=- N U N Y N d W m O O N N — Y C Y J W u u K n W L L m u > O [Y Y L Z Ip o v c. Ip N Q C N Y O w 3 F- o u u N a1 o m Y N N w a O. K n: WT Q Y C — Z O Y Q > d W Q C W 6 � Q C C C C `" t/ _ L -- ° V Y Y J > c Q C Q t7 VI O O Z V1 Ln to Vl K C, �- Z w Q LA F- —W cc K � J W J S A m h x u K VI K To be _added to <t of 1974 San Rafpei General r- n, Planning Comm ss i •ten P r:)p..,�, i it Lhe cnd of Chapter 1 (Pa;. 3, Col. d) . TABLE 3 THE PLANNING PROCESS A. AS PART OF THE GENERAL PLAN DOCUMENT 1. Goal Establishment 2. Basic Policies 3. Policies Regarding: a. Conservation and Open Space b. Environmental Hazards c. Housing d. Business and Industry e. Transportation 4. Implementation Listing and Commitment B. AFTER ADOPTION OF THE GENERAL PLAN 1. Complete Growth Management System (Completion and /adoption of Residential Review Procedure) 2. Amend Existing Programs and Ordinances to Conform with General Plan 3. Prepare Six Year Capital Improvement Program 4. Prepare Precise Plans for Some of the Following: a. Areas b. Neighborhoods c. Redevelopment Areas 5. Economic and Cost/Revenue Analysis 6. Develop and Adopt New Implementation Programs and Ordinances 7. Information Update 8. Monitor and Create Evaluation System for General Plan 9. Evaluate Implementation Techniques and Programs 10. Update Goals, Policies and Programs 11. Refine and Modify the General Plan (HGH/fv revised 8/30/74) Approved by San Rafael Planning Commission 9-3-74 1974 SAN RAFAEL GENERAL PLAN - PLANNING COMMISSION PROPOSAL (As recommended by the Planning Commission 9-3-74) CHAPTER VII - NOISE A. INTRODUCTION Noise is a human problem, an individual's qualitative reaction to sound. The physical components of sound which contribute to this reaction (i.e., frequency, amplitude, duration, time of day) can be monitored with varying degrees of sophistication. However, the subjective response of people to noise stimuli, the -composite effect of psychological and social stresses, varies greatly. The individual response resulting from noise interference with speech, hearing,'sleep and other functions is well documented. However, accurate projections at the community level, incorporating not only differences between people but differences in the ambient noise level (background noise fluctuations) present a formidable challenge. The two major characteristics of acoustical physics, frequency and amplitude, play a complex role in determining the human conception of loudness. The ear does not respond equally to differing frequencies, amplitudes, and their interrelation. A sound level meter which uses an 'A' (frequency) weighting scale . to measure amplitude in decibels (dB) approximates the response of the human ear to noise. This scale shall be used to monitor decibel counts which shall be expressed by the 'A' weighted day/night equivalent noise level. (LDN). This is the rating scale used by the Federal Environmental Protection Agency. (A definition of the LDN scale as well as a general guide to relative noise levels of common noise sources may be found in Appendix J.) 1. Purpose The purpose of this element is to implement general standards adopted by Federal and State agencies to reduce noise to acceptable levels, protect new development from excessive noise, and prevent noise sources that endanger the public health and welfare. The report of Bolt, Beranek and Newman, Acoustical Consultants to the Cities and County of Marin,single out the automobile as the largest contributor to the noise problem. The constant vehicular traffic on the major highways and arterials throughout the planning area provide the ambient (background) noise as measured by the consultants. There are instances where measured amounts of noise have exceeded sensitive levels bringing about individual response. Policies and implementation measures presented in this element will bring about a reduction of these levels. 2. Maximum noise levels by land use Itis desirable when implementing noise standards to correlate acceptable noise levels with land use. Certain land uses,because of their characteristics,are more sensitive to noise and its disruptive nature. Other land uses having initially higher ambient levels may tolerate higher levels of noise. When a land use involves a high degree of speech intelligibility, (i.e. homes or schools), 1974 SAN RAFAEL GENERAL 'AN - PLANNING COKM!SSION PROPC (As recommended by the _nning Corimission 9-3--74) It also becomes necessary to implement standards for acceptable interior noise levels. Several documents (California Administrative Code 25, Noise Insulation Standards, Federal Environmental Protection Agency's Summary of Noise Interference with Human Activities and Resulting - — - Health/Welfare Effects) have identified 45 dbA (LDN) as required interior limit for residential development. Table 13 identifies areas most sensitive to noise and the corresponding acceptable limit for exterior noise. TABLE 13 ACCEPTABLE EXTERIOR NOISE LIMITS (LDN) BY LAND USE Relative Ranking of Land Use Acceptable Exterior Noise Limit with Respect to Noise Sensibility Land Use (LDN Value in Decibels) 1 Single family & duplexes, apartments & condominiums 60 dbA or less 2 Hotels & motels 60 dbA or less 3 Schools, classrooms, libraries, _ churches & hospitals 60 dbA or less 4 Office & professional services 65 dbA or less 5 Commercial & retail 65 dbA or 1e55 6 Open space & playgrounds 65 dbA or less 7 Warehousing, industrial & manufacturing 70 dbA or less _2 1974 SAN RAFAEL GENERAL PLS. - PLANNING COMMISSION PROPOSAL (As recommended by the Planning Commission 9-3•-74) 3. Standards for Transportation Facilities During the next few years, the State is proposing to widen Route 101 from its present 6 lanes to 8 lanes. At the time the freeway is widened, an opportunity will arise to include noise shielding as a part of the new freeway design. When Route 101 is widened, it may or may not be possible, due to cost constraints, to install noise shielding along the entire 6.9 mile corridor. Higher noise levels are more acceptable for some activities (such as industrial) than others (such as residential), It is necessary to apply the acceptable noise level standards for the various types of land uses found within the freeway corridors and to establish a system of.priorities for noise abatement, 'Using State Department of Transportation 1995 predicted noise levels, the General Plan recommendations for land uses adjacent to the freeways will be segregated into noise sensitivity areas on a Freeway Noise Alleviation Priorities Map. (This map will be available in the City Planning Department Office.) Should it not be possible to alleviate excessive noise along the entire length of San Rafael's freeways, the State noise contour map in conjunction with Table 13 will focus on areas requiring the greatest attention. Using this map, the City can work with the Department of Transportation in studying the entire corridor to determine the feasibility of noise shielding, and to examine the types of shielding methods appropriate to the various parts of the corridor. In those areas where there is no significant existing development or where substantial redevelop= ment will be undertaken, the corridor noise study should weigh the relative public and private responsibilities for noise shielding to determine whether the private land owner should and can accept the primary responsibility for noise control, or whether some sharing of responsibility is called for. Other transportation facilities within the planning area,such as the railroads, Smith Ranch Airport and the maintenance yard of the Golden Gate Transportation District generate point"noise on an infrequent basis and presently do not cause any perceptive degrees of annoyance. However, it should be noted that development along transportation routes used by the Transit District should be monitored to ascertain the vehicular mix of automobiles and busses and the resulting noise level. B, POLICIES The following policies underlie and shape the character and protection of San Rafael's noise environment, it is the policy of the City of San Rafael to; Policy 1; Reduce the exposure of local residents to excessive transportation generated noise levels wherever this is economically and engineeringly feasible, -3 1974 SAN RAFAEL GENERAL vi -AN - PLANN i Nf, CGI`ih" I SS i G11 PROPOSAL (ins recon-ler.dcd by th_> Planning rcrnmiission 9-3-74) Policy 2: Encourage that the construction or alteration of any major trar»portation system incorporates noise allcviution techniques. Policy 3: Require for residential development specific acoustical design precautions in high noise level areas. Policy 4: Review the design of all residential development, other than detached single family, through the Residential Review Procedure for the effect of noise on exterior courts, patios, decks and other developed open space areas Policy 5: Monitor proper construction requirements for all development so that State criteria for interior noise limits are not exceeded. Policy 6: Enforce the California Vehicle Code noise emission standards for both new and existing motor vehicles. C. IMPLEMENTATION In addition to working with the State Department of Transportation to alleviate noise problems resulting from the freeways, there are several additional measures the City can take to alleviate noise problems in the community. 1, Plot Noise Contours A map that shows the noise level for every major arterial and the portions of Highway 101 and 17 within the planning area will be prepared'. This map, entitled "Noise Levels (LDN) for Major Arterials and Freeways" will be available in the Planning Department. It ,rill be a composite of noise contour maps for Highway 17 and 101 that have been provided by the California Department of Transportation and noise contour maps of the major arterials (ADT of 10,000 or more) within the planning area that will be plotted by the County of Marin. The highway contour maps have been plotted at 5 dbA (L10)* to indicate noise levels for existing and projected 1995 traffic flows, Techniques of monitoring noise and subsequent plotting of noise contours have been devised by Bolt, Beranek and Newman, This report includes a series of nomographs based upon AVERAGE DAILY TRAFFIC flow (ADT) and distances from the center of the roadway to determine decibel reading, at a particular point of interest, Utilizing this system as well as information provided by the State and County, the map prepared will show noise contours in relation to the noise sensitivity areas listed in Table 13. This system may also be used to determine future noise levels of the streets to be widened or extended as proposed by the Transportation Element of the Plan (Map 8), *The L10 measurement records the sound level that occurs for more than 10 of the sample time period. This excludes point sounds that occur less than 10% of the sample period. The California Transportation Department's noise contour map will be modified to show LDN contours. -4 1974 SAN RAFAEL GENERAL PLAN - PLANNING COMMISSION PROPOSAL (As by the Plannin._; Ccs ission 9-3-710 2. Ahai: Duca l F i xed No i se S ,u-ces Facilities generating excessive noise within sensitive areas shall be inventoried on a nuisance basis. Owners of facilities will be notified and given an amortization period during which a noise abatement program is to be instigated. This program shall incorporate City approved noise shielding measures. 3. Enforcement of State Vehicle Code Noise Emission Requirements Th,:- t'alifornia Vehicle Code has set noise emission standards both for the sale and operation of licensed motor vehicles in California, Standards are based on the measurement of sound levels at a distance of 50 feet from the center line of travel under established test procedures. The present operation standards (Section 23130) are the following: TABLE 14• CALIFORNIA VEHICLE CODE NOISE EMISSION STANDARDS Maximum Permitted Noise (Decibels on the A -Scale) Speed Limit of Speed Limit of Vehicle 35 MPH or less More than 35 MPH Vehicle weighing 6,000 lbs. or more 86 90 Motorcycle 82 86 Other vehicle . • 76 82 These operational standards are enforced by the California Highway Patrol on freeways and shall be enforced by the San Rafael Police Department on City thoroughfares. Section 27160 governing the sale of motor vehicles sets a 1987 limit of 70 dbA for all vehicles. Therefore, by 1988 all vehicles in California will have to meet the 70 decibel standard. 4, Analysis of Noise Environment for New Developments On a case-by-case basis projects will be reviewed for the impact of the noise environment on the project as well as for the extent the project adds to the noise environment. This review will be conducted under the Rresidential Review Procedure for residential development., or the Environmental and Design Review for all other developments. a. Exterior Noise Protection Noise insulation standards mandated by Title 25, Chapter 1 of the California Administrative: Code will be applied to protect occupants of residential units from the effects of excessive noise. These standards require that whenever a project is proposed in an area where the measured exterior noise exceeds 60 dbA (LDN),an acoustical analysis report shall be submitted. -5 1974 SAN RAFAEL GENERAL .-AN - PLANN114G COMMISSION PROPO„,:L (As recommended by the Planning Commis'sion 9-3-74) These reports shall show the construction and building attenuation measures used to achieve the required interior noise level of 45 dbA (LDI1). The City of San Rafael will require this report for each residential development proposal when the "Noise Levels for Major Arterials and Freeways" map of that location shows an exterior noise level of 60 dbA or more. b. Interior Noise Prevention Sound transmission control between dwelling units and guestrooms in hotels and motels is required by Noise Insulation Standards irrespective of outdoor noise levels. Sound Transmission Class and Impact Insulation Class standards as outlined in the'California Administrative Code must be met by wall and floor ceiling assemblies. c. Noise Generation Reduction Developments that will bring about a 5 dbA increase in the ambient noise level on the site will be required to produce mitigation measures that will reduce noise generation. Developments that will increase traffic through a noise sensitive area may be required to submit information showing the increased vehicular flow and the resultant increase in the ambient noise level. If this increase is substantial, mitigation measures will be required to maintain acceptable levels. The L10 measurement records the sound level that occurs for more than 10% of the sample time period, This excludes point sounds that occur less than 10% of the sample period. The California Transportation Department's noise contour map will be modified to show LDN contours. in TO BE ADDED TO GENERAL PLAN APPENDIX POPULATION DENSITY ANALYSIS FOR THE PLANNING AREA AND CITY A. MEASURING DENSITY AND POPULATION The Citizens Advisory Committee for the General Plan has at various times requested overall density figures to be assigned to the Planning Area. It has been sug- gested that these density figures be applied by the square mile, block or acre. The Planning Commission has also, at one point, requested a density "window" be applied to the Planning Area so that densities may generally be determined. Their intent was to prevent a repetition of high density developments such as have occurred in the East San Rafael canal area. Both of these suggestions have pointed up two real concerns. They are: 1) that a rapid growth in population and density does not overburden the available resources and detract from the existing environmental amenities of the Planning Area; 2) that policies, design constraints, density and building coverage limits be applied to avoid repetition of existing problems of congestion and environmental pollution resulting from high density development. TABLE 1 POPULATION ANALYSIS Area Square Miles of Land Population Total Per Sq. Miles Entire Planning Area 30.4 Existing 57,400 1,888 1990 County Plan Projection 80,700 .2,654 Within City Limits 15.3 Existing 46,800 3,053 The County's projected. population figure is dependent on a growth rate of 500 residential units per year for the entire Planning Area. That figure has not yet been reviewed in terms of the more exacting environmental, data that has now been accumulated and is being analyzed by the Planning Department. It is nec- essary for this data to be analyzed on a neighborhood basis rather than Citywide in order to avoid the kinds of dense development which has been referred to above. B. THE THREE DIFFERENT TYPES OF NEIGHBORHOOD DEVELOPMENT PROBLEMS THAT WE MUST DEAL . WITH EFFECTIVELY IN RELATIONSHIP TO POPULATION DENSITY Each of the 30 designated neighborhoods presents a different situation. Some of the neighborhoods have a great amount of development potential, others have a very limited potential. Certain neighborhoods are at a point where immediate decisions must be made either to maintain their character or facilitate a change in character which has already started. These neighborhoods suffer as a result of conflicting land use, inadequate infrastructure, nonconforming structures and a general tendency for increased development intensity without consideration of overall impact on the neighborhood. Other existing neighborhoods are•relatively development free and should be sensitively planned in recognition of their physical features. C. Generally neighborhoods fall into these three basic categories and each need different development and density controls: 1. Transitional neighborhoods - areas with a high mixture of single and multiple residential zoned land but a lack of infrastructure to support increased development. These areas are characterized by a substantial lack of vacant land and the speculative development of multiple units following the demoli- tion of single family structures. 2. Developed neighborhoods - areas where substantial development has taken place and a neighborhood character has already been established. Some peripheral vacant lands still remain and the neighborhood concern is that they be devel- oped consistent with the existing style and density pattern already established. 3. Undeveloped neighborhoods- - areas that are totally undeveloped or relatively development free wherein neighborhood character and density have not been established. Generally any new development in these areas would not be seen from any existing neighborhoods. Therefore, any development impact would be in,terms of demand on existing utilities and services. Based on several factors, a potential for cluster development exists. A minimum area per unit that might work in the transitional type of neighborhood could be detri- mental to good development in this type of area. Therefore, the application of one ceiling density. per unit of land is meaningless. The wide variety of neighborhood situations, potentials and characteristics render It so. NEIGHBORHOOD DENSITY ANALYSIS Densities within each neighborhood will be formulated as a part of the neighbor- hood plan. It will be necessary to analyze the following criteria to determine these densities: 1. The expressed density desires of the people now living in the neighborhood. 2. Existing neighborhood density. 3. Land capability based on analysis of the features of the land. 4. Environmental policies areas. 5. Analysis of the community service system. The purpose of this analysis is to show the development potential of any one area. This potential must not infringe upon eIthe r•e'nvironmentaI amenities or available resources. The first two items are necessary to assure the continuity of the existing character and pattern of the neighborhood. The remaining three items incorporate an extensive analysis of the neighborhood to determine the amount of development that may be accommodated. After the analysis is completed and the limits established and used as a basis for the neighborhood plan, the plan itself will be implemented through the following technique. -2 D. 114PLEMENTATIO14 TECHNIQUES Within those transitional neighborhoods, a new This zone will be entitled "Neighborhood Planni existing zoning in the area. The purpose of th ment the specifics of the neighborhood plan. borhood Planning District".) zoning district will be initiated. ng District" and will supersede e district is to legally imple- See draft of Chapter 14.38 "Neigh - W SECTIONS: 38.01 38.02 FIRST DRAFT - 10/2/74 CHAPTER 38 NEIGHBORHOOD PLANNING DISTRICT (NP) 38.01 Purpose. 38.02 Regulations applicable to NP Districts. 38.03 Initiation .38.04 Processing 38.05 Preparation of the Neighborhood Conservation Plan 38.06 Planning Commission Action 38.07 City Council Action PURPOSE The NP (Neighborhood Planning) District is intended to be used in older areas of San Rafael characterized by mixtures of uses or by transition from one character of use to another. The NP District is designed for use as part of a program for the conservation or revitalization of such.areas. The District takes -effect through the adoption of a precise plan and set of regulations, called the Neighborhood Plan, specifically intended, In each case, to facilitate maintenance and upgrading of the neighborhood- to determine the type and amount of any further development; to eliminate or ameliorate the adverse impact of what presently exists, e.g. the mixture of incompatible uses; in other words, to encourage neighborhood residents and owners to take positive steps for the. improvement of the neighborhood. REGULATIONS APPLICABLE IN NP DISTRICTS The Neighborhood Plan shall establish for each NP District the regulations governing the uses of land and structures, the height of buildings, and the range of density and land coverage. There shall be a separate and specific Neighborhood Plan for each NP District. Upon adoption by the City Council of the Neighborhood Plan and the establishment of the NP District, zoning heretofore applying to such area shall cease, and'the zoning regulations thereafter applying to such district shall be as set forth in the Neighbor- hood Plan. All regulations of the City of San Rafael normally relating to zoning (including the issuance of building and zoning permits, control of non -conforming uses, etc.,) shall thereafter be governed by the regulations of the Neighborhood Plan. 38-1 38.03 INITIATION The preparation of a Neighborhood Plan may be Initiated by a resolution of intention by the City Council. When a petition --requesting the establishment of an'NP District proposing the boundaries for the District and bearing the sig- natures of not less than percent of the property owners • within the District is submitted to the City Council, the Council shall hold a public hearing and determine whether to initiate the preparation of a Neighborhood Plan and set the District's boundaries or to terminate the proceedings. 38.04 PROCESSING ' The Neighborhood Plan and establishment of the NP District shall be treated as an amendment to the zoning text and map, and shall be processed in accordance with the provisions of Sections 92.030, 92.040 and 92.050 of Title 14 of the San Rafael Municipal Code. 38.05 PREPARATION OF THE NEIGHBORHOOD PLAN a. When so instructed by the City Council, the Planning Department shall prepare a Neighborhood Plan which shall consist of a detailed plan of land uses and related regulations in sub- stantial conformity with the San Rafael General Plan and any other applicable plans. A Neighborhood Plan shall: -1 Indicate the permitted, or conditional land uses. -2 Contain a schedule of density ranges, land coverage, and other applicable guidelines or regulations. Such guidelines or regulations shall be related to land capability based on land features, General Plan environmental policies and the capacity of the community's service system to support the development. -3 Contain specific standards for the application of site plan and design review procedures, with particular attention to the problems of remodeling existing buildings, and to the development of new buildings on vacant lots between existing buildings. w4 Contain, when appropriate, special performance standards designed to achieve cgmpatibility between single-family residential uses and apartment, office or other non- residential uses. 38-2 61 -5 Contain proposals for any other matters deemed important to the -conservation and revitalization of the area. Such proposals may. include but are not limited to the following: (a_) Plans for the routing and control of traffic, designed to expedite traffic flow while protecting residential sections from the adverse impact of heavy traffic. (b) Plans for the enhancement of the environment through such measures as increased public park and open space, street tree planting, landscape buffers, and the screening out of objectionable features. (c) Plans for the improvement of public facilities and services such as storm drainage, street paving, gutter' construction, fire protection, etc. b. The Planning Department shall establish a procedure in each case to enable the residents and property owners of the proposed district to participate in the development of the Neighborhood Plan. c. Upon completion of the Neighborhood Plan, the Planning Department shall: -1 Have the proposed plan reproduced and widely distributed in the proposed district. -2 Set a date for a public hearing on the plan and the estab- lishment of the District, and give proper notice of such hearing. 38.06 PLANNING COMMISSION ACTION Upon completion of the public hearing, the Planning Commission may recommend that the City Council adopt the Neighborhood Plan and establish the NP District, provided it shall find: a. That the Neighborhood Plan is in substantial conformity with the San Rafael General Plan; and b. There exists within the boundaries of the proposed NP District • substantial support for the provisions of the Neighborhood Plan and the establishment of the NP District. Should the Planning Commission be unable to make these two findings, it shall reject the Neighborhood Plan and the pro- ceedings shall thereupon be terminated. 38-3 I 38.07 CITY COUNCIL ACTION Upon receipt of a recommendation from the Planning Commission for the establishment of a Neighborhood Planning (NP) District, the City Council shall hold a public hearing thereon in accord- ance with the provisions of Section 92.050 of the San Rafael Municipal Code. Thereafter the City Council may adopt, modify or reject the amendment establishing the District. Prior to adoption or adoption with modification the City Council must establish as a finding of fact: a. That the proposed Neighborhood Plan is in substantial conformity with the San Rafael General Plan and with any other applicable plans. b. That there exists substantial community support for the NP District. C. That the City of San Rafael is able and intends to proceed within a reasonable time with any public.actions or improve- ments called for by the plan. A 38-4