DATE: November 3, 2025
TO: Mayor and Members of the City Council
VIA: Stefan Chatwin, City Manager
Marlene Subhashini, Assistant City Manager
FROM: Sofia Mangalam, Community Development Director
Nori Jabba, Housing and Sustainability Manager
Vanessa Brannon, Senior Management Analyst
DEPARTMENT: Community Development
SUBJECT: PARKS AND OPEN SPACE ELEMENT AND CONSERVATION
ELEMENT UPDATES
RECOMMENDATION
It is recommended that the City Council take the following actions:
1.Adopt the attached Resolution (Attachment 1) repealing the 2009 Parks and Open Space Element and amending the General Plan by adopting the 2025 Parks and Open Space Element and find that the adoption of the Element is exempt from the California Environmental Quality Act (CEQA) pursuant CEQA Guidelines Section 15061(b)(3) (“general rule” or “common sense”).
2. Adopt the attached Resolution (Attachment 2) repealing the existing 2003 Conservation Element and amending the General Plan by adopting the updated 2025 Conservation Element and finding that the adoption of the Element is exempt from the California Environmental Quality Act (CEQA) pursuant to CEQA Guidelines Section 15061(b)(3) (“general rule” or “common sense”).
EXECUTIVE SUMMARY
California law requires that General Plans be updated periodically. Except for the Housing Element, which must be updated every eight years, State law does not establish a specific schedule for updating other General Plan elements. The State Office of Land Use and Climate Innovation (LCI), formerly known as the Office of Planning and Research (OPR),
recommends that jurisdictions complete a comprehensive General Plan update every 10 to 15 years to reflect changes in community values, economic conditions, and emerging issues.
In the year 2021-2022 state legislative session, Senate Bill (SB) 1425 was passed and signed into law. This bill requires that the Open Space Element of the General Plan be updated by January 1, 2026, with expanded requirements, including:
(1) Access to open space for all residents in a manner that considers social, economic, and racial equity, correlated with the environmental justice element or environmental justice policies in the general plan, as applicable. (2) Climate resilience and other co-benefits of open space, correlated with the safety element.
(3) Rewilding opportunities, correlated with the land use element.
The other applicable bill is Assembly Bill (AB) 1889, which was signed into law on September 10, 2024, and requires the Conservation Element of the General Plan to analyze the effects of development on wildlife movement and habitat connectivity.
Beginning with the next General Plan update, which occurs on or after January 1, 2028, jurisdictions must identify and evaluate connectivity areas, permeability, and natural landscapes within their boundaries. They must also analyze existing and planned wildlife passage features and assess the impacts and barriers caused by development on wildlife and habitat connectivity.
To ensure compliance with SB 1425 and AB 1889, the City has prepared updates to the Parks and Open Space Element and the Conservation Element of its General Plan. The final drafts of two (2) Elements were presented to the Planning Commission on October 2, 2025, in a public hearing. At the meeting, the Planning Commission voted 4-0-0-1 (1- absent) approving Resolution P-12-25 (Attachment 7) recommending that the City Council repeal the 2009 Parks and Open Space Element and amend the General Plan by adopting 2025 Parks and Open Space Element and Resolution P-13-25 (Attachment 8) recommending that the City Council repeal the 2003 Conservation Element and amend the General Plan by adopting 2025 Conservation Element and finding the adoption of the Elements is exempt from the California Environmental Quality Act (CEQA) pursuant to CEQA Guidelines 15061(B)(3).
Staff recommends that the City Council adopt the attached resolutions (Attachments 1 and 2), which include the following actions: (1) repealing the 2009 Parks and Open Space Element and adopting the 2025 Parks and Open Space Element; (2) repealing the 2003 Conservation Element and adopting the 2025 Conservation Element; and making corresponding CEQA findings.
Public Notice
California Government Code Sections 65352 – 65352.4 requires that before a legislative body takes action to adopt or substantially amend a general plan, the planning agency shall refer the proposed action to a number of entities or conduct consultations with California Native American tribes that are on the contact list. The City has referred the Parks and Open Space Element and the Conservation Element to all California Native American tribes on the contact list provided by the Native American Heritage Commission, as well as to other listed entities, before the Planning Commission and City Council public hearings. No California Native American Tribe has requested consultation.
ANALYSIS
Since the start of the update process, there have been three (3) Joint Planning Commission and Parks and Recreation Committee Study Sessions and three (3) City Council meetings to provide an update and seek input on the preparation of the administrative drafts of the Parks and Open Space Element and Conservation Element.
At the last Joint Planning Commission and Parks and Recreation Committee Study Session and the City Council meeting, staff presented the administrative draft of the two (2) Elements. The administrative drafts were also made available for public review from August 8 through September 2, 2025.
Comments received from the public, City Council, Planning Commission, and Parks and Recreation Committee were incorporated into the final draft of each Element where appropriate. The majority of comments received were directed at the Parks and Open Space Element. Some comments relating to park management and recreation facilities that were more relevant to the Parks Master Plan were forwarded to the Parks and Recreation Department and the project consultant WRT.
A complete list of all comments and responses is included in Attachment 6 – Engagement Results Summary. Table 1 outlines the edits that were made to the final draft of the Parks and Open Space Element
Table 1: List of major comments and applicable edits to the Parks and Open Space Element.
Comment Summary Comment
Response
Page Number
(Attachment 3)
Community The Lagoon is described as both a
major recreational and ecological
water body, which seems
inconsistent, and suggests clarifying
whether it is primarily recreational or
ecological.
The requested edits
have been
incorporated.
Parks and Open
Space Element,
The lagoon is approximately 213
acres in size, to help in planning.
Recommends referencing surface
area as well as ecological function.
The requested
information
regarding the volume
of water held by the
lagoon has been
added.
Parks and Open
Space Element,
Requests that the City correct the
term “Canadian geese” to “Canada
geese,” and clarify that avian DNA,
rather than Canada goose DNA
alone, has been identified as
impacting water quality.
“Canadian geese”
has been corrected
to “Canada geese,”
and the statement
regarding poor
lagoon water quality
has been corrected
to more accurately
represent the cause
of poor water quality.
Parks and Open
Space Element,
Raised concerns about ensuring the
Parks and Open Space Element
does not conflict too strongly with
the Housing Element. Referring to
POS-F under the Implementation
Program, which states that as Foster
City grows, the City will strive to
maintain its existing park acreage
level of service (LOS) of 3.2 acres
per thousand residents. Provided
that the surrounding cities have an
LOS of 2.8 acres, and in order to
experience the expected growth
between now and 2040, an
additional 12.9 acres of park space
would need to be included in order
to maintain the 3.2 LOS. It was
suggested either remaining at the
current acreage or slightly below to
ensure that the city has room for the
Housing Element obligations.
The Parks and Open
Space Element was
adjusted to maintain
existing parkland
and evaluate
potential LOS in the
future. Language
was adjusted to
avoid potential
conflict with Housing
Element objectives,
emphasizing
balance and
flexibility.
Parks and Open
Space Element,
Planning
Commission
Asked if the acreage requirement
should be defined now. Referring to
the fact that the City is moving
towards more objective standards,
and having this conflict could create
unnecessary challenges for potential
developers.
The Parks and Open
Space Element was
adjusted to maintain
existing parkland
and evaluate
potential LOS in the
future. Language
was adjusted to
avoid potential
conflict with Housing
Element objectives,
emphasizing
balance and
flexibility.
Parks and Open
Space Element,
Asked about the calculation behind
12.9 acres, if the population is
expected to go up by 2040, and
suggested setting the goal at the
current acres per thousand
residents. Recommendation for
setting it at 2.8 and cautioned that
3.2 might not be sustainable.
Language around
park LOS has been
updated in the
Element to maintain
existing acreage and
consider the
appropriate metric at
a future time.
Parks and Open
Space Element,
Stated that the preferred approach is
to define the numbers to reach the
RHNA goals while still meeting the
needs of the community.
The Parks and Open
Space Element was
adjusted to maintain
existing parkland
and evaluate
potential LOS in the
future. Language
was adjusted to
avoid potential
conflict with Housing
Element objectives,
emphasizing
balance and
flexibility.
Parks and Open
Space Element,
Suggested that there be looser
language used in the elements.
Asked if the dredging refers to the
dumping of what has been dredged.
Language was
adjusted for flexibility
to avoid prescriptive
standards.
References to
dredging were
clarified to ensure
accuracy of
terminology
regarding sediment
removal and
management.
Parks and Open
Space Element,
Asked if they are looking to adopt a
formal and measurable standard.
The Parks and Open
Space Element
clarifies that
measurable
standards may be
established through
future planning
processes.
Parks and Open
Space Element,
Program POS-g)
Parks and Rec
Committee
Member
The attractiveness of the parks
should be discussed alongside the
technical components of the
element.
Narrative language
was added to
emphasize that
parks provide both
technical functions
(e.g., flood
protection, habitat
value) and
community benefits
Parks and Open
Space Element,
Pages 6 and 21
such as beauty,
identity, and quality
of life.
Referring to the issue raised by the
Planning Commission regarding the
LOS requirement of 3.2 acres per
thousand residents, or 12.9
additional acres are needed by
2040. Will this requirement interfere
with housing development?
The Parks and Open
Space Element was
adjusted to maintain
existing parkland
and evaluate
potential LOS in the
future. Language
was adjusted to
avoid potential
conflict with Housing
Element objectives,
emphasizing
balance and
flexibility.
Parks and Open
Space Element,
Noted missing elements from some
of the entries in the parks inventory
(Table 1) and requested Parks &
Rec review the table before
finalizing the report.
Table 1 was
reviewed and refined
for accuracy and
updated to better
reflect the major
facilities at each
park.
Parks and Open
Space Element,
Pages 8-9
Recommended revising strong
wording in policies (e.g., “ensure”) to
alternatives like “promote”, “create”,
or “aspire to.”
Strong prescriptive
wording was revised
to alternatives such
as “promote” or
“support,” consistent
with the Council’s
direction.
Parks and Open
Space Element,
Pages 31-36
City Council
Found implementation programs
starting on Page 46 a bit vague and
requested clarification on definitions
of long-term, mid-term, and short-
term to be added to the Elements.
Also, would like to see some of the
long-term goals done sooner.
Language added for
clarification: short-
term (1-5 years),
mid-term (6-10
years), and long-
term (10+ years).
Parks and Open
Space Element,
In addition to the specific edits identified through public and Council/Commission/Committee feedback, staff made further corrections to acreage data, refined technical descriptions, and improved clarity and readability throughout both Elements. A list of staff edits is provided in Attachment 5. Redline versions of both Elements are also included for reference:
Parks and Open Space Element – redline version – Attachment 3 Conservation Element – redline version – Attachment 4
Draft 2025 Parks and Open Space Element (Attachment 1, Exhibit A – P_OS Element Final)
The draft 2025 Parks and Open Space Element fulfills State requirements for an Open Space Element and establishes Foster City’s vision for how recreational and natural areas, including parks, open space, facilities, and recreation programs, are developed, maintained, and enhanced. The Element recognizes parks and open space as essential to community health, social connection, and environmental stewardship, while also contributing to climate resilience by addressing flooding, extreme heat, and other natural hazards.
The Element is organized into four (4) main sections:
1. Requirements – Summarizes State legal requirements, regional policies, and local plans.
2. Background – Provides a systemwide assessment of existing park and open space conditions, including level of service, access, connectivity, usage, and amenities, along with detailed park site evaluations and community engagement results.
3. Goals and Policies – Establishes seven (7) goals and 22 policies focused on park system planning, programming, and events, operations and maintenance, open space values, and climate resiliency.
4. Implementation Programs – Outlines 29 programs identifying lead and supporting departments and timelines for implementation.
Attachment 1, Exhibit B, provides a legislative consistency checklist confirming that the Parks and Open Space Element Update complies with State planning law and recent legislation, including SB 1425 and AB 1889. California Government Code Section 65302(e) requires cities to adopt an open space element that addresses the preservation and enhancement of open space lands, equitable access to recreation, and long-term community needs. The analysis confirms that the updated Element meets these requirements and incorporates all recent mandates. The checklist describes how the City’s goals, policies, and implementation programs align with statutory provisions.
Overall, the 2025 Parks and Open Space Element provides a comprehensive framework for guiding the long-term stewardship of Foster City’s parks and open spaces. It promotes equitable access to recreation, enhances quality of life, and supports environmental sustainability and community resilience. The Parks and Open Space Element is a complementary plan to the Parks Master Plan.
Draft 2025 Conservation Element (Attachment 2, Exhibit A – Cons Element Final) The draft 2025 Conservation Element of the General Plan fulfills State requirements and establishes Foster City’s long-term vision for conserving and managing its natural and cultural resources. The Element emphasizes environmental sustainability, community well-being, and climate resilience as key priorities for the City’s resource management. It
guides the protection and enhancement of biological habitats, the urban forest, surface and groundwater, and historic, cultural, and tribal resources, while supporting efforts to improve air quality and reduce greenhouse gas emissions in alignment with State mandates.
The Element is organized into four (4) primary sections:
1. Requirements – Summarizes State requirements, regional policies, and local plans.
2. Background – Provides a comprehensive assessment of Foster City’s environmental setting, including natural resources, water and air quality, energy infrastructure, and habitat areas. It also evaluates future challenges such as sea level rise, groundwater rise, and extreme heat, and identifies opportunities for biodiversity, carbon sequestration, and equitable access to green space.
3. Goals and Policies – Establishes nine (9) goals and 38 policies addressing biological resources, water resources, air quality, energy resources, and climate adaptation.
4. Implementation Programs – Outlines 23 specific programs to achieve the vision of the Element, identifying lead and supporting departments and timelines for implementation.
As with the Parks and Open Space Element, staff has included a legislative consistency checklist (Attachment 2, Exhibit B) to confirm alignment with State law and recent legislation. California Government Code Section 65302(d) requires cities to adopt a conservation element addressing the protection of natural resources, including water and air quality, biological resources, and energy conservation. The analysis confirms that the updated Element meets these requirements and incorporates new mandates, including AB 1889, which directs jurisdictions to consider wildlife movement and habitat connectivity.
Overall, the 2025 Conservation Element demonstrates strong consistency with State planning law while advancing Foster City’s long-term vision for environmental stewardship, climate resilience, and sustainable management of natural and cultural resources. It provides a clear and modern framework to protect the environment and support the quality of life for the community.
California Environmental Quality Act
Pursuant to CEQA Guidelines Section 15061(b)(3), also known as the “general rule” or “common sense” exemption, CEQA exempts activities that can be seen with certainty to have no possibility for causing a significant effect on the environment. CEQA Guidelines Section 15061(b)(3) states that “A project is exempt from CEQA if…[t]he activity is covered by a common sense exemption that CEQA applies only to projects which have the potential for causing a significant effect on the environment. Where it can be seen
with certainty that there is no possibility that the activity in question may have a significant effect on the environment, the activity is not subject to CEQA.” The Updates involve the adoption of policy documents to establish the City’s vision, goals, policies, and programs for the provisioning and management of natural and recreational areas within the city, as well as the protection of natural and cultural resources. These policy documents, in and of themselves, do not include any proposed projects or development. The Updates do not propose or approve any physical development and will not result in changes to the physical environment, nor will they result in potential environmental impacts. To the extent that the Updates identify potential future projects or development, those would be analyzed if and when the City approves those projects in accordance with CEQA. The Updates meet the criteria for the common sense exemption as identified above.
FISCAL IMPACT
Implementing the various programs outlined in the Implementation Plan of the Draft Elements will have a fiscal impact. However, adopting the 2025 Parks and Open Space Element and 2025 Conservation Element does not directly result in financial obligations.
The City Council will guide the implementation of these programs by giving policy direction to staff and through the annual budget process.
CITY COUNCIL VISION, MISSION, AND VALUE/PRIORITY AREA
City Council Operations and Improved Community Engagement Smart Planning, Development, and the Local Economy
ATTACHMENTS:
Attachment 1 – Parks and Open Space Resolution
Exhibit A: P_OS Element – Final Clean Version
Exhibit B: P_OS Element – Legislative Consistency Checklist Attachment 2 – Conservation Element Resolution
Exhibit A: Cons Element – Final Clean Version
Exhibit B: Cons Element – Legislative Consistency Checklist Attachment 3 – P_OS Element – Redline Version
Attachment 4 – Cons Element – Redline Version
Attachment 5 – Full List of Edits in Redlined Versions
Attachment 6 – Engagement Results Summary
Attachment 7 – Planning Commission Reso P-12-25
Attachment 8 – Planning Commission Reso P-13-25