CITY COUNCIL STAFF REPORT
Meeting Date: March 20, 2023
TO: THE HONORABLE MAYOR AND CITY COUNCILMEMBERS
SUBJECT: STUDY SESSION ON THE CITY OF PLEASANT HILL PUBLIC REVIEW DRAFT 2040 GENERAL PLAN
SYNOPSIS
The City Council is requested to hold a study session to discuss and provide feedback on the General Plan Update. The Housing Element, which was reviewed separately by the City, is not included and is currently under review with the State of California Housing and Community Development Department (HCD). The Planning Commission held a study session to provide input and feedback; a summary of their comments are provided in the staff report.
BACKGROUND
Overview
California State law requires that every jurisdiction in California must have a General Plan, which is the City’s long-term framework or “constitution” for future growth and development.
The General Plan represents the community’s view of its future and expresses community development goals. The General Plan contains the goals and policies upon which both the City Council and Planning Commission will base their land use and resource decisions. Typically, a General Plan is designed to address the issues facing the City over the next 20 years.
A General Plan has three defining features:
1. General. A General Plan provide general policy guidance to direct future land use and resource decisions.
2. Comprehensive. A General Plan is comprehensive, covering topics including land use, housing, economic development, infrastructure, public safety, recreation and natural resources.
3. Long-Range. A General Plan provides guidance for achieving the community’s vision for the City 20 or more years into the future. To achieve the vision, this comprehensive plan includes goals, policies, and actions that address both immediate and long-term needs.
General Plan Process
The General Plan process included seven phases starting with the initiation of the update process, which began in March 2019, and continuing through adoption of an updated General Plan slated for Spring/Summer 2023. A description of the seven phases for the 2040 Pleasant Hill General Plan update follows below:
1. Phase 1: Initiation. Establish the foundation for the project, including developing tools to be used throughout the update, meeting with the City’s General Plan Advisory Committee (GPAC), comprising two members of the City Council, two members of the Planning Commission, and one member of the Architectural Review Commission. This phase also includes initiating the community engagement program.
2. Phase 2: Community Engagement (ongoing throughout the update). Conduct community outreach and engagement, which includes GPAC meetings, City Council and Planning Commission meetings, Community Workshops, newsletters, and pop-up booths at festivals and events.
3. Phase 3: Existing Conditions and Trends. Compile information on existing conditions and trends within the City and Planning Area based on topical areas that the General Plan covers.
4. Phase 4: Choices. Work with the community to prepare, evaluate, and ultimately define a preferred policy and land use alternative that will be the basis of the updated General Plan.
5. Phase 5: Preparing the Plan. Prepare the General Plan based on the Existing Conditions and Trends Workbook, visioning, and alternatives planning.
6. Phase 6: Assessment. Analyze the potential environmental impacts of implementing the General Plan, pursuant to the California Environmental Quality Act (CEQA).
7. Phase 7: Digital Plan. Refine the General Plan through Planning Commission and City Council public hearings. Following City Council adoption of the Plan, the City will reformat the General Plan into a fully searchable online General Plan.
The General Plan update is currently in the later phases of the process (Phase 6/7), as the City approaches the projected adoption timeframe previously mentioned.
Community Outreach
The General Plan process offered a wide range of community outreach methods with a goal of reaching out to as many community members as possible to receive feedback on the proposed General Plan Update. The outreach included various public events, surveys, and the formation of a General Plan Advisory Committee (GPAC) that held multiple public meetings to discuss and provide input on the update.
Outreach featured the creation of a General Plan website to serve as a track record for the entire process. This website (www.pleasanthill2040.com) includes online engagement exercises, a documents library of deliverables for review, a comment/sign-up feature for community members to receive General Plan notifications, as well as Journal page that serves as a blog of the Update process.
The General Plan Update process also included several outreach notification methods, which have provided notice to community members about upcoming meetings and events. Some of the methods are provided below:
The Outlook Newsletter
Posting on the City of Pleasant Hill electronic billboard NextDoor
Facebook
City Weekly Updates
City Website
Constant Contact E-blasts (Consultant generated from community events and the General Plan website)
GPAC Meetings
The City completed 22 GPAC meetings at which individual Elements of the General Plan were presented and reviewed for Committee and public input. This is in addition to the outreach events that occurred before and during the GPAC process. Based on this feedback, the Draft General Plan Update was finalized and posted for ongoing public input on the City website and the City pleasanthill2040.com website in December 2022.
DISCUSSION
As part of this Study Session, City staff and the consultant team request the Council discuss the draft General Plan Update and provide feedback. The various elements are summarized below:
A. Introduction
The Introduction chapter provides an overview of the General Plan and the process used to develop the 2040 General Plan, including a Reader’s Guide that provides useful information on how to read and use the goals, policies, and programs presented in each element. The introduction also includes Vision and Guiding Principles, which were finalized after discussion with the GPAC and Planning Commission.
B. Economics and Economy Element
The Economics and Economy Element explores ways of maintaining the fiscal health of the City to ensure a high level of public services and community amenities, while contributing significantly to the quality of life. The element includes goals, policies, and programs related to retaining and expanding existing business sectors, as well as diversifying the economy to develop and attract new kinds of businesses in the City.
Many of the goals, policies and programs originated in the current Economic Element of the General Plan 2003. Modifications have been made to existing goals, policies and programs with new content provided through the review process, with highlights noted below:
Emphasizing the role of the light industrial district as a location for incubator light industrial uses;
Acknowledging and encouraging growing technology sectors, including biotechnology; Adding goals and policies to develop and expand necessary economic infrastructure, such as broadband (internet) and transportation (EV, ride sharing, alternative transportation).
C. Land Use Element
The Land Use Element has the most significant impact on existing and future residents because it determines the general location of residential, commercial, industrial, public, and open space uses. Land use policies ultimately guide development and shape the urban fabric. The Land Use Element includes goals, policies, and programs that guide land development in the City. The Element addresses the type and intensity of development allowed on a site, the mix of uses permitted within the City, and the character of the community. Highlights of modified and new goals, policies and programs are noted below:
New land use designations provided, in part to address the Housing Element and the accompanying need to plan for additional housing throughout the City. Many of the new land use designations are mixed use categories.
New goals and policies related to commercial and mixed use development, overall community development, ensuring the success of commercial property and connectivity to complementary uses.
New polices related to compatible and properly-scaled multi-family development. Emphasis on a transportation network that relies upon and incorporates alternative modes of transit beyond the automobile.
Addressing, protecting and enhancing future City growth. New goals, policies and programs related to 10 Focus Areas throughout the City, each tailored to its individual characteristics.
New provisions related to ensuring a healthy community, including overall health, aging, outdoor open spaces, and connectivity.
A new environmental justice section that addresses equal access to foods, education, open spaces and medical services, and avoids burdening any resident or group of residents based on age, identity, income, race, color, education status or national origin.
Emphasis on public engagement in the City-decision making process. Follow up actions including, but not limited to:
o Public art, benefits and amenities requirements study. o Undergrounding utility requirement study.
o Scenic route landscaping provisions study.
o Mangini-Delu Master Plan – The Mangini-Delu area involved significant public input and an overall desire by the City to include a more thorough analysis of future development of this area.
D. Transportation and Circulation Element
The Transportation and Circulation Element discusses the City’s transportation network and services that provide mobility for residents, employees, and visitors, and move goods throughout the City. This system is not only a roadway network serving automobiles, but one that also serves other modes of transportation including walking, bicycling, and transit within and connectivity to points outside the City. Highlights of modified and new goals, policies and programs are noted below:
Support a City with a vibrant and walkable environment that encourages alternative transportation options.
o Reinforcing the need for transportation demand management to accommodate other transportation options.
o Encouraging the development of a comprehensive and integrated transportation network and infrastructure (Complete Streets).
o Promoting off-street paths and trails.
Consider traffic calming methods throughout the City to result in a safer transportation network.
Emphasize working with the local school district to address traffic speeds and congestion in and around schools.
Support the safe and efficient movement of goods to foster City commerce and industry.
Promote integrated regional transportation planning for the betterment of residents of the City.
Follow up actions including, but not limited to:
o Adopt and maintain a Vision Zero action plan.
o Evaluate congested intersections.
E. Public Facilities, Services and Infrastructure Element The Public Facilities, Services and Infrastructure Element contributes to the quality of life for both individuals and groups in the community. It provides convenient and efficient services, a sense of identity, and defines the visual character of the City.
Examples of typical public facilities include churches, hospitals, and police and fire stations. Highlights of modified and new goals, policies, and programs are noted below:
Strengthened goals and policies related to water supplies. Updated and new policies needed to ensure up-to-date communication utilities for the future needs of residents (fiber optic, telecommunications, etc.), including a new program for the preparation of a communications master plan. Support for maintaining a high level of public safety services. Support of the City’s new library facility and services. A new program to study the City’s existing requirement for undergrounding of utilities (particularly, focusing on off-site undergrounding related to development projects).
F. Open Space, Parks and Recreation Element
The City of Pleasant Hill does not provide parks and recreation services for the City (Pleasant Hill Park and Recreation District, “PHRPD,” provides these services); however, the City includes a Parks and Recreation Element component to highlight its inherent benefits to a community and its citizens, including economic, health, environmental, social, and overall quality of life, and to support the services that PHPRD provides to the residents of the City. The Open Space component of this Element is also important as recreational, natural resource, and cultural assets can provide wildlife habitat, wilderness protection, groundwater retention, active recreational uses, historic landscapes, and visual corridors. Highlights of modified and new goals, policies and programs are noted below:
Reinforce and support PHRPD services to residents of all income levels and abilities. Continue to support and work with the PHRPD for the services and facilities that the District provides citywide.
G. Environment Element
The Environment Element aims to preserve, protect, and enhance the natural and historical resources that make Pleasant Hill a unique place. In the previous General Plan, many related goals, policies and programs were located in various Elements. In this update, they have been consolidated in one place: the Environment Element. This Element touches on topics related to air and water quality; natural, biological, and cultural resources; and sustainability. Highlights of modified and new goals, policies and programs are noted below:
New goals and policies to ensure adequate provision of water supply, including measures for water conservation (water fixtures, construction methods, use of recycled water). New policies to preserve water resources related to development, such as minimizing over-parking and using alternative paving and drainage solutions.
New policies to protect creeks through supporting natural waterways and keeping invasive species out of creek habitats.
Policies to increase the City’s urban forestation that retains trees and use of native species.
New goals and policies to protect cultural and tribal resources and historical reference materials.
New goals and polices to address air quality effects, through the use of fuel efficient vehicles for the City fleet, the prohibition of gas-powered landscaping equipment, and requiring that new development near sensitive receptors (residences, schools, medical facilities) complete an analysis to minimize negative effects.
New goals and policies related to greenhouse gas emissions, including prioritizing alternative transportation modes, mitigating new project GHG impacts, improving electric vehicle infrastructure, and incorporating sustainable design in community facilities.
New goals and policies to become a low- or zero-waste community. This includes policies for composting, construction recycling, education, and City purchasing priorities.
H. Hazards and Safety Element
The Hazards and Safety Element evaluates natural and urban safety hazards in the City and outlines goals, policies, and implementation programs to minimize risk to life and property. The primary natural hazard threats for Pleasant Hill are earthquakes, drought, localized flooding, wildland fires, and an increased number of high heat days. Many of the goals and policies in this Element correspond to local and regional safety priorities.
This Element also includes discussion of noise and hazardous materials. Highlights of modified and new goals, policies and programs are noted below:
Including goals and policies related to advanced preparation that ensures quick and effective responses to health, natural and man-made hazards. Additional policies addressing geologic and seismic hazards, including design of emergency and public infrastructure to better withstand major earthquake damage. New policies related to wildfire risk, particularly with wildfire events that have occurred in recent years in the State. This includes emphasizing compliance with State and Federal requirements related to wildfire prevention, consistency with the Contra Costa County Hazard Mitigation Plan, and additional awareness and compliance with evacuation routes per State laws.
New goals and policies related to drought and associated water conservation measures.
New policies related to flooding that seek to minimize the effects of new impervious surfaces and address any new runoff resulting from development. New policies to protect residences from noise impacts. New goals and policies related to public health emergencies. This has an emphasis due to the recent and ongoing COVID health pandemic.
Proposed Modifications
Attachment B contains various modifications to the 2040 General Plan that are proposed to be included in the document. Many of the revisions are related to increasing clarity, changes that City Staff believe are warranted; and others that address minor edits and modifications that came about through the preparation of the Draft Environmental Impact Report (DEIR).
Planning Commission Comments
At the February 14 2023 Planning Commission meeting, staff conducted a study session to solicit feedback from the Planning Commission, as well as any additional public feedback. A summary of Commission feedback is provided below:
Extensive discussion on the potential to incorporate a ban on new gas hookups (for appliance purposes). The General Plan proposes conducting a study to review a proposed ban; however, some members of the Commission commented that a ban should be pursued without the need for such a study.
Discussion including goals, policies or programs related to “Reach Codes.” These are optional Building Code provisions, largely related to sustainability, that exceed the requirements mandated by Title 24 Building Code. “Reach Codes” target reduced greenhouse gas emissions and increased energy efficiency. Generally, members of the Commission were supportive of exploring provisions related to “Reach Codes,” though some expressed reservations concerning the financial impacts of imposing codes that exceed State requirements.
Citing an increase in airport traffic, one Commissioner encouraged the inclusion of General Plan provisions that further augment the County airport’s sensitivity to City residents living in the vicinity of the airport.
Commissioners noted that the General Plan should incorporate additional provisions related to diversity. They also recommended that the Diversity Commission have the opportunity to provide input and feedback. Staff attempted to coordinate a presentation to the Diversity Commission, though lack of a quorum precluded such a meeting prior to this Study Session. Staff encouraged the Commission members to provide input as part of this Study Session.
Some members offered that the General Plan should incorporate more provisions related to home schooling.
The feedback provided by the public is provided in Attachment C.
FISCAL IMPACT
Not Applicable
PUBLIC CONTACT
Public contact was made through posting of the City Council agenda on the City’s official notice bulletin board, at the Pleasant Hill Senior Center and at the Pleasant Hill Police Department.
Outreach also included posting on the website, and the separate City General Plan website, email blasts to those signed up for General Plan Updates, newspaper posting, social media posts and posting on the City Hall Changeable Message Sign. The agenda and staff report are posted on the City’s web page.
RECOMMENDED CITY COUNCIL ACTION
Conduct the study session, receive public input, and provide feedback and recommendations to Staff.
ATTACHMENT(S):
Attachment A Draft General Plan Update
Attachment B Proposed General Plan Update Modifications Attachment C Public Comments
Prepared by: Troy Fujimoto, City Planner
Reviewed by: Ethan Bindernagel, Community Development Director and Assistant City Manager Approved by: June Catalano, City Manager