City of Sacramento
City Council - 5PM Report
915 I Street Sacramento, CA 95814
www.cityofsacramento.org
File ID: 2024-00322 2/27/2024 Public Hearing Item 22.
Adoption of the 2040 General Plan and Climate Action & Adaptation Plan (Noticed on 02/16/2024)
File ID: 2024-00322
Location: Citywide
Recommendation: Conduct a public hearing and upon conclusion: 1) adopt a Resolution certifying the Master Environmental Impact Report and adopting the mitigation monitoring program for the 2040 General Plan and Climate Action & Adaptation Plan; 2) adopt a Resolution adopting and implementing the 2040 General Plan and repealing the 2035 General Plan; and 3) adopt a Resolution adopting the Climate Action & Adaptation Plan.
Contact: Amy Yang, Associate Planner, (916) 808-5023, [email protected]; Remi Mendoza, Senior Planner, (916) 808-5003, [email protected]; Vic Randall, Senior Planner, (916) 808-5530, [email protected]; Matt Hertel, AICP, Long Range Planning Manager, (916) 808-7158, [email protected], Community Development Department Presenter: Matt Hertel, AICP, Long Range Planning Manager, (916) 808-7158, [email protected]
Attachments:
1-Description/Analysis
2-Background
3-Revisions to the Draft 2040 General Plan since the January 25, 2024 Planning and Design Commission Hearing
4-Final Master Environmental Impact Report for the 2040 General Plan and Climate Action & Adaptation Plan
5-Resolution Certifying the Master Environmental Impact Report and Adopting the Mitigation Monitoring Program for the 2040 General Plan and Climate Action & Adaptation Plan 6-Exhibit A: Findings of Fact and Statement of Overriding Considerations 7-Exhibit B: Mitigation Monitoring Program for the 2040 General Plan 8-Resolution Adopting and Implementing the 2040 General Plan and Repealing the 2035 General Plan
9-Exhibit A: Hearing Draft 2040 General Plan
10-Exhibit B: Technical Background Report for the 2040 General Plan
File ID: 2024-00322 2/27/2024 Public Hearing Item 22.
11-Resolution Adopting the Climate Action & Adaptation Plan 12-Exhibit A: Hearing Draft Climate Action & Adaptation Plan 13-Technical Memorandum from the Airport Land Use Commission 14-Correspondence Received for the February 27, 2024 Hearing Draft 2040 General Plan and Climate Action & Adaptation Plan
Additional Description/Analysis
Issue Detail: In 2019, the Sacramento City Council initiated a multi-year process to comprehensively update the General Plan and Climate Action Plan, collectively referred to as the Sacramento 2040 project. The Vision Statement for the Sacramento 2040 project, adopted by City Council in 2019, states, “In 2040, the City of Sacramento will be a national model of sustainable, equitable growth and community development.” The Vision Statement is also supported by a series of guiding principles (adopted with the Vision Statement in 2019) as well as 10 key strategies (adopted in 2021) which served as the framework for updating the plans.
The new 2040 General Plan will replace the 2035 General Plan and serve to guide Sacramento in its long-term growth and development. The General Plan Update has been focused on addressing new state laws, updating goals, policies, and actions to reflect changed conditions and priorities, and managing growth sustainably and equitably in ways that benefit the whole community, increasing opportunity and prosperity for all.
The Climate Action & Adaptation Plan (CAAP) builds off the current Climate Action Plan, which is incorporated in the 2035 General Plan. The CAAP, which includes the addition of a Climate Change Vulnerability Assessment and an Adaptation Chapter, has been developed in conjunction with the General Plan Update in the Sacramento 2040 process. The CAAP establishes Sacramento’s greenhouse gas (GHG) reduction targets for 2030 and 2045, and positions Sacramento to reduce GHG emissions while adapting to projected climate change impacts. The CAAP meets the requirements for a “qualified” GHG reduction plan as defined by the California Environmental Quality Act (CEQA) Guidelines §15183.5(b) and can therefore act as a tool for streamlining the CEQA process for new development that aligns with the CAAP.
On January 25, 2024, staff held a public hearing with the Planning and Design Commission for the Draft 2040 General Plan, the Draft Climate Action & Adaptation Plan (CAAP), and the Master Environmental Impact Report (MEIR). At the conclusion of the hearing, the Planning and Design Commission passed a motion to forward to City Council a recommendation to certify the Final MEIR and adopt the 2040 General Plan and CAAP, with recommended modifications to general plan policies LUP-4.12 and LUP-4.13 as explained below.
Planning and Design Commission
The Planning and Design Commission (Commission) recommended changes to policy LUP-4.12
File ID: 2024-00322 2/27/2024 Public Hearing Item 22.
(Drive-through Restaurants) because the majority of the Commission did not want to preclude new drive-through restaurants between ¼-mile and ½-mile of the proposed light rail extension in Natomas due to the unknown construction timeline of the light rail extension. The proposed change will prohibit new drive-through restaurants only within ¼-mile instead of a ½-mile from a planned light rail station, and also prohibit new drive-through restaurants within a ½-mile of existing light rail stations and high- frequency transit stops. The revised policy is included in Attachment 3 and the February 27, 2024 Hearing Draft 2040 General Plan.
The Planning and Design Commission also recommended that staff review policy LUP-4.13 (Future Ready Gas Stations) and explore options, including policy text changes, if necessary, in order to ensure that new electric vehicle (EV) charging stations will be well-maintained, working, and reliable.
Staff recommends addressing this issue raised by the Commission via the planning approval process when EV charging infrastructure at gas stations will be approved. All gas stations will require a Conditional Use Permit (CUP) to operate or expand. As such, adequate maintenance of the EV charging infrastructure can be made a condition of approval. Using the CUP process to improve reliability of charging infrastructure ensures that specific conditions can be tailored to the project.
Airport Land Use Commission
The Airport Land Use Commission (ALUC) reviewed the Draft 2040 General Plan for consistency with airport land use compatibility plans that involve the city. On February 2, 2024 staff received a technical memorandum from the ALUC which finds the draft General Plan to be conditionally consistent with five compatibility plans against which it has been evaluated, once an issue with respect to the 1992 Rio Linda Airport Comprehensive Land Use Plan is addressed (see Attachment 13 - ALUC Technical Memorandum).
The issue to be addressed requires limiting development within the area identified as a clear zone in the flight path of the Rio Linda Airport. Accordingly, staff have changed the land use designation from Neighborhood to Open Space for various parcels located in the Rio Linda Airport clear zone and vicinity. Attachment 3 includes a list of the parcels by APN with the updated land use designation.
As a next step and to become fully consistent with the airport compatibility plans, the update of the City’s Planning and Development Code will need to be completed, referred to the ALUC staff for a consistency review, and found consistent with the compatibility plans. In the meantime, until complete consistency of the General Plan and the Planning and Development Code with the airport land use compatibility plans is obtained, the finding of conditional consistency requires that the City continue to refer to the ALUC for staff review, all proposed major land use actions.
Attachment 3 includes a list of the limited changes to the Draft 2040 General Plan since the January 25, 2024, Planning and Design Commission meeting. These staff-initiated changes are a result of
File ID: 2024-00322 2/27/2024 Public Hearing Item 22.
input from the Planning and Design Commission, the Airport Land Use Commission (discussed above), public feedback, and technical map corrections. All changes listed in Attachment 3 are also reflected in the February 27, 2024 Hearing Draft 2040 General Plan (Attachment 9). Staff evaluated the general plan revisions made in Attachment 3 and concluded that none of the changes results in new significant environmental impacts or a substantial increase in the severity of an environmental impact and therefore, recirculation of the Master Environmental Impact Report (MEIR) is not required.
The public hearing this evening is held for staff to present the final 2040 General Plan, CAAP, and Final MEIR. These documents are the culmination of five years of community outreach, policy development, as well as cross-departmental and inter-agency coordination. At the end of this public hearing, staff will be recommending the certification of the MEIR and adoption of the 2040 General Plan and CAAP.
Policy Considerations: The Draft 2040 General Plan and the Draft Climate Action & Adaptation Plan are consistent with the Vision and Guiding Principles adopted by Council in November 2019 and the January 2021 Council Resolution (No. 2021-00220) directing staff to proceed with the draft land use map, proposed roadway changes, and other key strategies for the purposes of the preparation of the 2040 General Plan, Climate Action & Adaptation Plan, and the Master Environmental Impact Report.
Economic Impacts: The 2040 General Plan is anticipated to have a positive economic impact. First, the goals, policies, and implementing actions of the Economic Development Element aim to create a dynamic, resilient economy with a diverse array of businesses; create sustained, inclusive growth that generates long-term, shared value in the community and creates economic opportunities for all residents; fosters a business environment conducive to growth, investment, collaboration, and the exchange of ideas; and ensure the workforce is equipped with the resources and skills needed to succeed in the 21st century economy.
Second, the proposed land use development patterns focus on promoting infill development and reuse of underutilized properties, as well as on intensifying development near transit and mixed-use activity centers. An interconnected network of mixed-use corridors and centers with a range of housing, employment, educational, cultural, and recreational options is anticipated to help diversify the housing supply, address affordability, and ultimately boost the vitality of local businesses.
Third, the Draft 2040 General Plan’s commitment to increasing housing types is complimented by the 2021-2029 Housing Element’s (adopted separately in 2021) aim to affirmatively further fair housing on all fronts. The adopted 2021-2029 Housing Element includes policies and programs that aim to foster the development of more housing options for all economic segments of the community and further protect residents from displacement, which supports inclusive economic and community development throughout the city, especially in neighborhoods that have been historically denied access to high-quality services and resources.
File ID: 2024-00322 2/27/2024 Public Hearing Item 22.
Finally, the CAAP is expected to have a net positive economic impact, through measures and actions that will support economic development, and others that will avoid projected negative economic consequences that could occur in the absence of the identified measures and actions. Some measures and actions are anticipated to leverage state and federal funding in ways that will benefit the Sacramento economy. However, implementation of certain actions, notably related to transportation investments, do have significant associated costs as detailed in CAAP Appendix D.
Environmental Considerations: The consideration and adoption of a new general plan and a new Climate Action & Adaptation Plan (CAAP) is a “project” under the California Environmental Quality Act (CEQA), and a Master Environmental Impact Report (MEIR) has been prepared for the 2040 General Plan and CAAP to satisfy CEQA requirements. CEQA provides that when a MEIR has been prepared, subsequent projects that are within the scope of the MEIR may receive expedited environmental review.
The focus of the MEIR is cumulative development allowed under the 2040 General Plan, and potential cumulative impacts, growth-inducing impacts and irreversible significant effects on the environment. Development assumptions in the MEIR are based on a level of development that can reasonably be expected during the 20-year planning horizon of the 2040 General Plan. During the preparation of the MEIR, Environmental and Long Range Planning staff have been in close coordination, and an effort has been made to revise general plan policies to avoid or reduce environmental impacts to the greatest extent possible. The 2040 General Plan Update and MEIR is, therefore, intended to be self-mitigating through the use of environmentally protective policies. Once certified, the MEIR will be a reference point for the environmental review of many later projects.
Significant and unavoidable impacts have been identified for Biological Resources, Cultural and Historic Resources, Noise and Vibration, and Tribal Cultural Resources. Pursuant to the requirements of CEQA, the presence of significant and unavoidable impacts imposes a requirement for adoption of a Statement of Overriding Considerations to approve the project. The Findings of Fact and Statement of Overriding Considerations along with the Mitigation Monitoring Program have been prepared and can be found as Attachments 6 and 7.
The Draft MEIR has been circulated for a 45-day public review and comment period as required by CEQA, and has been posted online on the website maintained for environmental documents by the Community Development Department, and the general plan website. Printed copies of the Draft MEIR were also available at the Community Development Department (300 Richards Boulevard, 3rd Floor) and the Central Library (828 I Street).
Fifteen comment letters were received on the Draft MEIR. The comment letters and responses to comments are included in the attached Final MEIR (Attachment 4). The Final MEIR responds to all comments received on the Draft MEIR and revises text and/or analyses where warranted. On
File ID: 2024-00322 2/27/2024 Public Hearing Item 22.
January 18, 2024, formal responses to comments were mailed to all agencies who commented on the Draft MEIR pursuant to Public Resources Code Section 21092.5.
Following the public comment period, staff evaluated the revisions made to the 2040 General Plan and CAAP in advance of the February 27th City Council Meeting, to determine whether any of them required recirculation pursuant to CEQA Guidelines section 15088.5. Staff concluded that none of the changes results in new significant environmental impacts or a substantial increase in the severity of an environmental impact and therefore, recirculation is not required.
The Draft and Final MEIR are available on the Community Development Department’s CEQA webpage.
Sustainability: Policies pertaining to sustainability have been incorporated into the Draft 2040 General Plan and Climate Action & Adaptation Plan. Policies and implementing actions in both documents support the City’s efforts to reduce greenhouse gas emissions significantly by 2030, surpassing State requirements, and put the city on a path to reach carbon neutrality by 2045, as well as increase the community’s ability to adapt to the impacts of climate change such as extreme heat and increased flooding risk. The documents also emphasize an equitable approach toward fostering a more sustainable city, working to make sure the most vulnerable and historically underrepresented communities are seeing infrastructure and climate investments.
Commission/Committee Action: On January 25, 2024, staff held a public hearing with the Planning and Design Commission for the Draft 2040 General Plan, the Draft Climate Action & Adaptation Plan (CAAP), and the Master Environmental Impact Report (MEIR). At the conclusion of the hearing, the Planning and Design Commission passed a motion to forward to City Council a recommendation to certify the Final MEIR and adopt the 2040 General Plan and CAAP, with recommended modifications to general plan policies LUP-4.12 and LUP-4.13 as discussed above in the Description/Analysis.
Rationale for Recommendation: The Draft 2040 General Plan and Draft Climate Action & Adaptation Plan are consistent with the adopted Vision and Guiding Principles. The 2040 General Plan is a state-required land use and policy document that will guide the City’s growth in a sustainable manner for the next 20 years.
Financial Considerations: Not applicable.
Local Business Enterprise (LBE): Not applicable.
File ID: 2024-00322 2/27/2024 Public Hearing Item 22.
Attachment 2-Background
WHAT IS A GENERAL PLAN?
California Government Code section 65300 requires each city and county to adopt a General Plan “for the physical development of the county or city, and any land outside its boundaries which… bears relation to its planning.” The General Plan must comply with certain statutory requirements. The Sacramento General Plan can be considered a blueprint for development and conservation - a set of policies that guide the City’s land use and capital investment decisions for the next two decades. The Sacramento General Plan serves to:
• Establish a long-range vision that reflects the aspirations of the community and outlines steps to achieve it;
• Guide decision-making related to development, housing, transportation, environmental quality, public services, parks, open space, and agricultural conservation; • Help Sacramento achieve compliance with applicable State and regional policies, including housing production and environmental regulations;
• Allow City departments, other public agencies, and private developers to design projects that will enhance the community, preserve environmental resources, and minimize hazards; and • Provide the basis for establishing and setting priorities for detailed programs, such as the Planning and Development Code and future specific plans.
WHAT’S INCLUDED IN THE CLIMATE ACTION & ADAPTATION PLAN? The Climate Action & Adaptation Plan (CAAP) builds off the current Climate Action Plan, which is incorporated in the 2035 General Plan. The CAAP is also informed by the City’s Climate Emergency Declaration, and the 2020 Mayors’ Commission on Climate Change Final Report that outlined a high-level path to carbon neutrality for the Cities of Sacramento and West Sacramento. Key Strategies for the Climate Action & Adaptation Plan were approved by City Council in January 2021.
The CAAP establishes Sacramento’s greenhouse gas (GHG) reduction target for 2030, which surpasses the statewide GHG reduction goal of 40% below 1990 levels by 2030 established by Senate Bill 32, and also establishes a 2045 climate action goal. The CAAP provides GHG reduction measures and actions that are achievable based on substantial evidence. The CAAP meets the requirements for a “qualified” GHG reduction plan as defined by the California Environmental Quality Act (CEQA). A GHG reduction plan that meets the requirements of CEQA Guidelines §15183.5(b) can act as a tool for streamlining the CEQA process for new development that aligns with the CAAP.
The CAAP will position Sacramento to reduce GHG emissions while adapting to projected climate change impacts. The approach to achieving carbon neutrality involves reducing community and municipal GHG emissions within the city or sequestering GHG emissions within the city. The CAAP sets new and ambitious targets for the city compared to a baseline GHG Inventory and Forecast and quantifies key measures and actions to achieve the 2030 target and put the City on a trajectory to achieve carbon neutrality by 2045.
Key CAAP measures identified to achieve the City’s GHG reduction goals include improving active transportation infrastructure, promoting Zero Emission Vehicle adoption, electrifying buildings, reducing GHG emissions from organic waste, and sequestering carbon by increasing urban tree canopy cover citywide.
The CAAP also includes an Adaptation chapter, which builds on analysis completed in the Climate Change Vulnerability Assessment (VA). The VA analyzes the projected effects of climate change in Sacramento over the course of the 21st Century, with special consideration of the projected impacts on the most vulnerable populations within the community.
Key projected climate change vulnerabilities that the VA considered include temperature increase, changes in precipitation and increased flooding, increased wildfire and associated air quality impacts. Six primary adaptation goals
File ID: 2024-00322 2/27/2024 Public Hearing Item 22.
were identified, with supporting policies and actions that the City will take to strengthen Sacramento’s capacity to adapt to climate change impacts to protect public health and safety. CAAP implementation will position Sacramento to reduce GHG emissions while adapting to projected climate change impacts.
PUBLIC OUTREACH AND FEEDBACK
Public participation has been an essential component to the overall success in updating the 2040 General Plan Update and Climate Action and Adaptation Plan (CAAP). The focus of the first phase of community outreach was on identifying and understanding the issues and opportunities that needed to be addressed in updating the General Plan and CAAP. In total, over 700 individuals participated in the first round of community outreach (from March 2019 to December 2019) which included:
· Citywide Workshops (4)
· Community Plan Area Workshops (10)
· Community Listening Sessions (3)
· Environmental Justice Working Group Mtgs (4)
· Climate Action Plan Youth Ambassador Program
· Summer at City Hall Youth Program
· Pop-up Workshops
During the second phase of outreach, the project team engaged with the community to develop a Draft Land Use Map, Proposed Roadway Changes, and Key Strategies. Approximately 2,200 individuals participated in the second round of community outreach (from January 2020 to October 2020) which included:
· Virtual Citywide Workshops:
· A Scientific Survey
· Virtual Community Plan Area Workshops
· Focused Group Interviews
· Pop-up workshops to Engage Underserved Communities
· Youth Engagement
During the final phase of outreach and over the entire comment review period (April 28 th - October 10th, 2023), staff aimed
to collect feedback on the Public Review Drafts of the 2040 General Plan and Climate Action & Adaptation Plan through a variety of methods, including the following:
· Self-Guided Online Workshop (available April 28
th - October 10th, 2023)
· Pop-ups at community events (13)
· Meetings with community/neighborhood organizations (12) · Conversations with a Planner (4)
· Council and Commission presentations (10)
· Social media postings
· Email blasts
Additionally, staff presented to the following Commissions for review and comment and in effort to encourage public input on the Draft 2040 General Plan and CAAP:
· Parks and Community Enrichment Commission (June 1, 2023) · Youth Commission (June 5, 2023)
· Disabilities Advisory Commission (June 7, 2023)
File ID: 2024-00322 2/27/2024 Public Hearing Item 22.
· Planning and Design Commission (June 8, 2023)
· Arts, Culture, and Creative Economy Commission (June 12, 2023) · Active Transportation Commission (June 15, 2023)
· Historic Preservation Commission (June 21, 2023)
· Planning and Design Commission (June 22, 2023)
Printed copies of the Draft 2040 General Plan and Climate Action & Adaptation Plan were also available at the Community Development Department public counter (300 Richards Boulevard) and at the downtown Central Library (828 I Street). As a result of this outreach, staff received over 1,200 comments on the Draft General Plan and nearly 400 comments on the Draft Climate Action & Adaptation Plan through the Self-Guided Online Workshop. Additionally, 91 letters on the Draft General Plan and 35 letters on the Draft CAAP were received. In response, staff reviewed each comment received and proposed changes where appropriate. Proposed changes were presented to the Planning and Design Commission on November 29, 2023, through redlined draft documents of the 2040 General Plan and Climate Action & Adaptation Plan and a comprehensive list of staff responses to comments.
The Draft Master Environmental Impact Report (EIR) was available for public comment between August 24, 2023 and October 10, 2023. The Draft Master EIR is available online (https://www.cityofsacramento.org/Community- Development/Planning/Environmental/Impact-Reports) as well as in hard copies at the Community Development Department public counter (300 Richards Boulevard) and at the downtown Central Library (828 I Street). Over the comment review period, staff received a total of 15 comment letters from public agencies, organizations, and individuals.
All written public and agency comments received during the public review period for the Sacramento 2040 Project Draft Master EIR are addressed in the Final Master EIR (Attachment 4).