Sacramento City Council
February 27, 2024

Tsunamis and Seiches. A tsunami is a large sea wave caused by an earthquake or volcanic eruption.

Because Sacramento is located approximately 75 miles inland from the Pacific Ocean, there is no threat of tsunami damage to the City.

Seiches are waves induced by seismic activity on inland bodies of water. Reservoirs, lakes, ponds, swimming pools, and other enclosed bodies of water are subject to potentially damaging seiches.

This hazard is dependent upon specific earthquake parameters (e.g., frequency of the seismic waves, distance and direction from the epicenter), as well as site-specific design of the enclosed bodies of water, and is thus difficult to predict. Areas of the City that may be vulnerable to this hazard are primarily improvements next to the American and Sacramento rivers.

Dam Failure Inundation. Dams that are under State jurisdiction are required to have inundation maps that show the potential flood limits in the remote, yet disastrous possibility a dam is catastrophically breached. This hazard is discussed in Section 7.2 Flood Hazards.

Soils
The NRCS has mapped over 30 individual soil units in the Policy Area (Figure 7-1). The predominant soil units in the Policy Area are San Joaquin, Clear Lake, Galt, Cosumnes, and Sailboat soils, which account for over 60 percent of the total land area. The remaining soil units each account for only a few percent or less of the total. The San Joaquin soils are generally present in the eastern and southeastern part of the city. The Clear Lake and Cosumnes soils occur in the northern part of the city. Galt soils are in the southwestern part of the city, in an area generally bound by Interstate 5 (I-5) and State Route 99 (SR 99). The Sailboat soils occur along the American and Sacramento rivers.

Soil descriptions for the principal soil units in the Policy Area are provided below. These descriptions were developed by the NRCS and are for soils in their native, undisturbed state. Since much of the Policy Area has been developed with urban uses, actual soil characteristics may vary considerably from the mapped locations and description.

San Joaquin Series. The San Joaquin series consists of soils that formed in alluvium derived from mixed but dominantly granitic rock sources. Generally, these soils are found on undulating low terraces at slopes of zero to nine percent. These soils are typically well and moderately-well drained, with medium to very high runoff, and very slow permeability. Some areas with these soils are subject to rare or occasional flooding.

Clear Lake. The Clear Lake series consists of very deep, poorly drained soils that formed in fine textured alluvium derived from sandstone and shale or other mixed rock sources. Clear Lake soils have clay textures and are generally located in basins and in swales of level drainage ways, with slopes of zero to two percent. These soils are generally poorly drained with slow to very slow permeability, and negligible to high runoff. Typically, these soils have a water table at depths of 4 to 10 feet in the late summer, while during wet winter months the water table can be very near the surface in some areas. Some areas are artificially drained.

Watt/I-80
Watt/I-80 West
Roseville Road
Marconi/Arcade
Royal
Oaks
Arden/Del Paso
Globe Avenue
16th Street
23rd
Street 29th
Street
39th
Street
48th
Street 59th
Street
University/
65th Street
Power Inn
College
Greens
Watt/Manlove
Starfire Broadway (& 19th)
4th Ave./
Wayne Hultgren
City College
Fruitridge
47th Avenue
Florin
Meadowview
Swanston
Airport
Station
Club Center Dr/
N. Village Center
North Natomas
Town Center
East Town Center
Arco Arena
Arena
Blvd.

Gateway Park/
Market Place
San Juan Rd.

Pebblestone Way
W. El Camino Ave.

Richards
Blvd.

Franklin
Blvd.

Cosumnes River
Center Parkway
Morrison Creek
Railyards
Twin
Rivers
Sacramento City Limit
Sphere of Influence
Policy Area
Water
Light Rail
Station
Blue Line
Blue/Gold Line
Gold Line
Green Line
Proposed Green Line Extension
Soils
Americanos
Bruella
Capay
Clear Lake
Columbia
Cosumnes
Dierssen
Dumps
Durixeralfs
Egbert
Fiddyment
Galt
Hedge
Hicksville
Jackstone
Kimball
Lang
Laugenor
Liveoak
Madera
Orthents
Pits
Reiff
Riverwash
Rossmoor
Sailboat
San Joaquin
Scribner
Tinnin
Urban
Valpac
Xerarents
Xerofluvents
Water
Source: City of Sacramento Commmunity Development Department, 2018; USDA (NRCS), 2009 Z:\Projects\j1149901\MAPDOC\TBR\Section 7 Env Hazards\Figure7-1_Soils.mxd 0 0.5 1 2 Mile
Figure 7-1
Soils

TECHNICAL BACKGROUND REPORT

Galt. The Galt series consists of moderately deep and moderately well drained soils that were formed in fine textured alluvium from mixed, but dominantly granitic, rock sources. Galt soils are generally located on low terraces, basins, and basin rims and have slopes of zero to five percent.

Some areas are rarely or occasionally flooded for brief to long periods in December through April.

Cosumnes. The Cosumnes series consists of very deep somewhat poorly drained soils formed in alluvium from mixed sources. Cosumnes soils are located on low flood plains and have slopes of zero to two percent. These soils have slow permeability and very slow to slow runoff potential.

Flooding commonly occurs in unprotected areas, and rare flooding occurs in protected areas during prolonged periods of rainfall in the winter and early spring. Most areas are drained due to ground water overdraft. In some areas along major rivers, a water table occurs from December through April at depths of 36 to 60 inches, due to seepage.

Sailboat. The Sailboat series consists of very deep, somewhat poorly drained soils that contain a buried soil and formed in alluvium from mixed sources. Sailboat soils are generally located on natural levees of large rivers and sloughs, and on low flood plains of rivers and streams with slopes of zero to two percent. These soils have moderately slow permeability and slow runoff potential.

Occasional flooding occurs in unprotected areas and rare flooding occurs in protected areas during prolonged periods of rainfall in the winter and early spring. Some areas are drained due to groundwater overdraft. In areas along major rivers, a water table occurs from December through April at depths of 36 to 60 inches due to seepage.

Soil Hazards
Soil Erosion. Erosion refers to the removal of soil from exposed bedrock surfaces by water or wind.

Erosion occurs naturally in most systems, but is often accelerated by human activities that disturb soil and vegetation. The rate at which erosion occurs is largely a function of climate, soil cover, slope conditions, and inherent soil properties such as texture and structure. For example, the effects of erosion are intensified with an increase in slope (as water moves faster, it gains momentum to carry more debris), the narrowing of runoff channels (which increases the velocity of water), and by the removal of groundcover, which leaves the soil exposed. Although the Policy Area is relatively flat, erosion potential is generally identified on a case-by-case basis, depending on the abovementioned factors.

Shrink/Swell Potential (Expansive Soils). Shrink/swell potential refers to soils that expand when wet and shrink when dry. This hazard occurs primarily in soils with high clay content and can cause structural damage to foundations and roads that do not have proper structural engineering and are generally less suitable or desirable for development than non-expansive soils. Many of the soil units present within the Policy Area, exhibit high shrink-swell potential. Areas within the Policy Area that may be particularly susceptible to high shrink/swell potential include the Natomas and Valley Hi areas. Site-specific geotechnical studies are necessary to identify where such hazards could occur.

Subsidence. Subsidence is the settling or sinking of land, usually occurring over broad areas and, therefore, not normally perceptible at the ground surface. Subsidence can be induced by natural processes or by specific human activities. Subsidence is a normal occurrence in many areas of California; such as in Santa Clara and San Joaquin Valleys however, localized subsidence also

occurs. Sacramento County is affected by five types of subsidence. They are compaction of unconsolidated soils by earthquake shaking, compaction by heavy structures, the erosion of peat soils, peat oxidation, and fluid withdrawal. The pumping of water for residential, commercial and agricultural uses from subsurface water tables causes the greatest amount of subsidence in Sacramento County (Sacramento County 2017). This phenomenon particularly occurs in those areas underlain by alluvium soils. Subsidence produces cracks in pavements and buildings and may dislocate wells, pipelines, and water drains. Sacramento has experienced land subsidence in the past. One notable example is the construction of Interstate 5 in downtown Sacramento where the withdrawal of water from the alluvial soils caused the area adjacent to the freeway to subside.

Similar instances have occurred like on November 29, 2018 where water from a leaking pipe caused the highway to partially collapse (CBS Local 2018).

Paleontological Background
Paleontological resources include fossil remains, as well as fossil localities and rock or soil formations that have produced fossil material. Fossils are the remains or traces of prehistoric animals and plants. Fossils are important scientific and educational resources because of their use in: (1) documenting the presence and evolutionary history of particular groups of now extinct organisms, (2) reconstructing the environments in which these organisms lived, and (3) determining the relative ages of the strata in which they occur and of the geologic events that resulted in the deposition of the sediments that formed these strata and in their subsequent deformation. The Quaternary sediments of the Great Valley are gravels laid down by large river systems. These deposits contain well-preserved vertebrate and plant fossils similar to the flora and fauna we see today.

REGULATORY CONTEXT
Seismic and geologic hazards are primarily regulated at the state level. In California, seismic hazards are regulated by the Alquist-Priolo Earthquake Fault Zone Act and Seismic Hazards Mapping Act.

Federal
Uniform Building Code
The Uniform Building Code (UBC) provides minimum requirements for grading, building siting, development, and seismic design. The UBC is often adopted by local jurisdictions, along with more stringent standards for development specific to that region.

Federal Antiquities Act
The Antiquities Act of 1906, as amended, sets forth penalties for damage and destructions of antiquities and stipulates the requirements for permitted excavation.

TECHNICAL BACKGROUND REPORT

Paleontological Resources Protection Act
The Paleontological Resources Protection Act (PRPA) of 2009 requires the Secretaries of the Interior and Agriculture to manage and protect paleontological resources on federal land. The Federal Highway Act of 1935 (20 United State Code [USC] 78) addresses paleontological resources.

Section 305 of the Act (20 USC 78, 78a) gives authority to use federal funds to salvage archaeological and paleontological sites that are impacted by highway projects. There are several other laws and regulations that also address paleontological resources either directly or indirectly, such as the Antiquities Act of 1906 (16 USC 431-433), Archeological and Paleontological Salvage (23 USC 305), and the National Environmental Policy Act of 1969 (42 USC 138; 49 USC 1653).

State
Alquist-Priolo Earthquake Fault Zoning Act
The Alquist-Priolo Special Studies Act was signed into law in 1972 (in 1994 it was renamed the Alquist-Priolo Earthquake Fault Zoning Act). The primary purpose of the act is to mitigate the hazard of fault rupture by prohibiting the location of structures for human occupancy across the trace of an active fault. The act requires the State Geologist to delineate “Earthquake Fault Zones” along faults that are “sufficiently active” and “well defined.” The act dictates that cities and counties withhold development permits for sites within an Earthquake Fault Zone until geologic investigations demonstrate that the sites are not threatened by surface displacements from future faulting. No portion of the Policy Area is within an Earthquake Fault Zone.

Seismic Hazards Map Act
Under the Seismic Hazards Mapping Act, seismic hazard zones are to be identified and mapped to assist local governments in land use planning. The intent of this publication is to protect the public from the effects of strong ground shaking, liquefaction, landslides, ground failure, or other hazards caused by earthquakes. In addition, CGS’s Special Publications 117, “Guidelines for Evaluating and Mitigating Seismic Hazards in California,” provides guidance for the evaluation and mitigation of earthquake-related hazards for projects within designated zones of required investigations. The Sacramento region has not been subject to any seismic hazards mapping by CGS.

California Building Code (CBC)
The 2016 Triennial Edition (Effective January 1, 2017) of the California Code of Regulations (CCR), Title 24, Part 2, the California Building Code (CBC), provides minimum standards for building design. The most recent edition of Title 24 was published on July 1, 2019, with an effective date of January 1, 2020. Chapter 16 of the CBC deals with Structural Design Requirements, including (but not limited to) regulations governing seismically-resistant construction and construction to protect people and property from hazards associated with excavation cave-ins and falling debris or construction materials. Chapter 18 deals with site demolition, excavations, foundations, retaining walls, and grading, including (but not limited to) requirements for seismically-resistant design, foundation investigations, stable cut and fill slopes, and drainage and erosion control. Construction

activities are subject to occupational safety standards for excavation, shoring, and trenching as specified in California Division of Occupation Safety and Health regulations (CCR, Title 8). The City implements the CBC through the building permit process (Sacramento City Code, Title 15, Buildings and Construction).

The CBC also defines different building regions in the State and ranks them according to their seismic hazard potential. Seismic Zone 1 has the least seismic potential and Zone 4 has the highest seismic potential. The City is in Seismic Zone 3; accordingly, any future development would be required to comply with all design standards applicable to Seismic Zone 3.

Part 11 of the 2016 Title 24 Building Standards Code is the California Green Building Standards Code, also known as the CALGreen Code. This is the first statewide green building standards code in the nation. The latest update to the CALGreen Code became effective on January 1, 2020.

CALGreen provides a set of mandatory provisions for all new construction and includes two voluntary “Tiers” that may be adopted via local amendment. Residential provisions include energy efficiency standards, pre- and post-construction storm water drainage retention measures, indoor water use reduction, irrigation control, diversion of construction waste, fireplace restrictions, among many other specific measures. Non-residential requirements include several similar measures as the residential but also include bicycle parking requirements, clean-air vehicle parking requirements, light pollution reduction measures, cool roof, among other specific measures (USGBC 2017).

Local
Sacramento County Local Mitigation Plan
The Sacramento County Local Hazard Mitigation Plan aims to reduce or eliminate long term risk to people or property from natural disasters, including flood and seismic events. The plan covers areas located outside of the city boundary but within the Policy Area. The plan notes that Sacramento is located in Seismic Hazard Zone 3. One of the most notable potential hazards associated with a major seismic event is the potential for damage to flood levees (Sacramento County 2017).

City of Sacramento Emergency Operations Plan
The Emergency Operations Plan is managed and updated by the City of Sacramento’s Office of Emergency Management (OEM) and addresses the City’s planned response to all hazards, including but not limited to: natural disasters, including flood events, seismic events, technological incidents, and nuclear defense operations. It provides operational concepts related to various emergency situations, identifies components of the local emergency management organization, and describes the City’s overall responsibilities for protecting life and property during an emergency.

The plan also identifies possible sources of outside support (through mutual aid and specific statutory authorities) from other jurisdictions, and the private sector.

TECHNICAL BACKGROUND REPORT

Sacramento City Code
Chapter 15.20 (Uniform Building Code). This chapter of the Municipal Code adopts the California Building Code (CBC), 2016 Edition, and amends particular sections where appropriate to suit the specific conditions within the City of Sacramento. This chapter mandates compliance with the CBC and all of its amendments adopted by the code. All new construction and modifications to existing structures within the city are subject to the requirements of the code.

Chapter 15.88 (Grading and Erosion and Sediment Control). The city’s grading ordinance is enacted for the purpose of regulating grading on property within the city to safeguard life, limb, health, property and the public welfare; to avoid pollution of watercourses with nutrients, sediments, or other materials generated or caused by surface water runoff from construction sites; to comply with the City's National Pollution Discharge Elimination System Permit issued by the California Regional Water Quality Control Board; and to ensure that the graded site within the city limits complies with all applicable city ordinances and regulations. The grading ordinance is intended to control all aspects of grading operations within the city.

Department of Utilities. The City of Sacramento Department of Utilities maintains policies and guidelines regarding grading, erosion control, stormwater drainage design, inspection, and permitting. It is responsible for issuing several types of permits, including grading and construction permits.

7.2 Flood Hazards

INTRODUCTION
Over the course of Sacramento’s history, floods have been the most frequent and considerable natural hazard affecting the City’s environment and economy (Sacramento County 2008). This section describes the existing flood hazards within the Policy Area, as well as the flood protection measures provided by federal, state, and local programs. The information for this section comes from a variety of documents, including the Sacramento County Local Hazard Mitigation Plan (Sacramento County 2017), the Sacramento and San Joaquin River Basins Comprehensive Study Interim Report (Reclamation Board and Corps 2002), the Sacramento and San Joaquin Rivers Basin Study Report (Bureau of Reclamation 2016) and the subsequent Central Valley Flood Protection Plan (DWR 2012).

EXISTING CONDITIONS
The City of Sacramento is located at the confluence of the Sacramento and the American rivers in the southern portion of the Sacramento River Basin. The Sacramento River Basin encompasses about 27,000 square miles and is bounded by the Sierra Nevada to the east, the Coast Ranges to the west, the Cascade Range and Trinity Mountains to the north, and the Delta to the southeast. The Sacramento River forms the western boundary of the Policy Area from Interstate 80 (I-80) to south of the Pocket Area (see Figure 6-7). The American River transects the Policy Area, flowing west to join the Sacramento River roughly along the northern boundary of the Central Business District.

The American River watershed is situated on the western slope of the Sierra Nevada. Elevations in the watershed range from over 10,000 feet above mean sea level in the high Sierra to 23 feet above mean sea level at the confluence of the American and Sacramento rivers.

The Policy Area contains many natural and man-made drainage features, which ultimately drain into the Sacramento River. Six small tributaries of the Sacramento River pass through, and provide drainage for, the City of Sacramento. These tributaries include Dry Creek, Magpie Creek, and Arcade Creek in the northern portion of the City, and Morrison Creek, Florin Creek, Elder Creek, Unionhouse Creek, and Laguna Creek in the southern portion of the City. These creeks, in addition to local surface water drainages such as Chicken Ranch and Strong Ranch sloughs form the major natural drainages within the Policy Area. Man-made drainage canals, such as the Natomas East Main Drain Canal and the East, West, and Main Drainage Canals provide drainage for a large portion of the urbanized areas within the Policy Area that are not served by the Combined Sewer System or the City’s sumps.

High water levels along the Sacramento and American rivers are a common occurrence in the winter and early spring months due to increased flow from storm runoff and snowmelt. An extensive system of dams, levees, overflow weirs, drainage pumping plants, and flood control bypass channels strategically located on the Sacramento and American rivers has been established to protect the area from flooding. These facilities control floodwaters by regulating the amount of water passing through a particular reach of either river. The amount of water flowing through the levee system can be controlled from outside of the Policy Area by Folsom Dam on the American River and the reserve overflow area of the Yolo Bypass on the Sacramento River.

Folsom Dam is located on the American River approximately 15 miles east of the Policy Area. The dam is owned and operated by the U.S. Bureau of Reclamation. Folsom Lake and its afterbay, Lake Natoma, release water to the lower American River and to the Folsom South Canal. The operation of Folsom Dam directly affects most of the water utilities on the American River system.

Water flows into the Yolo Bypass via the Fremont Weir northwest of the Policy Area and the Sacramento Weir west of the Policy Area. The Sacramento River bypass system was federally authorized in 1917 and includes a system of flood relief structures and weirs that release Sacramento River flows into the bypass system west of the Policy Area when flows exceed downstream channel capacity (DWR 2011). Downstream of the American River confluence, the Sacramento River has a design capacity of 110,000 cubic feet per second (cfs). The American River, however, enters the Sacramento River with a design capacity of 180,000 cfs. During periods of high flow, the 2-mile portion of the Sacramento River between the Sacramento Bypass and the American River confluence can support reverse river flow so that a portion of the American River input flows upstream and through the Sacramento Weir. The Sacramento Weir diverts floodwaters west down the mile-long Sacramento Bypass into the Yolo Bypass. The Sacramento Weir was most recently opened in 1998 and 2005 (DWR 2005). It is a key structure protecting the City of Sacramento during high flows on the Sacramento River, diverting flows through the Sacramento Bypass into the Yolo Bypass for safe passage to the Delta. Additional Information on these resources is provided in Section 6.3 Water Resources.

TECHNICAL BACKGROUND REPORT

100-year Flood Hazard Zone
Flood hazard areas identified on the Flood Insurance Rate Map (FIRM) are identified as a Special Flood Hazard Area (SFHA). SFHA are defined by FEMA as the area that will be inundated by the flood event having a 1-percent chance of being equaled or exceeded in any given year. The 1-percent annual chance flood is also referred to as the base flood or 100-year flood. (FEMA 2013 [FEMA 2013. Flood Zones Definition. Available at: http://www.fema.gov/floodplain-management/floodzones. Accessed January 27, 2019]). Figure 7-2 shows the FIRM flood hazard zones within the Policy Area and identifies the 100-year flood hazard zone areas. The specific FIRM zones are discussed in detail below under “Regulatory Context” within the discussion of the Federal National Flood Insurance Act of 1968.
200-year Floodplain
In general, the area adjacent to a stream, river, or other water channel is called the floodplain. The floodplain is the area that is inundated during a flood event and is often physically discernible as a broad, flat area created by historical floods. Within the City of Sacramento, the 200-year floodplain (0.5% annual chance of inundation) covers 56,543 acres, which is the majority of the Policy Area. SB 1278 (2012) and AB 1965 (2012) directed DWR to release floodplain maps for urban areas by July 2, 2013, to provide information on the water surface elevation of flooding in the event of failure of State Plan of Flood Control (SPFC) facilities during a 200-year event. The 200-year floodplain is shown on Figure 7-3. The map on Figure 7-3 reflects DWR’s latest available data (at the time of this writing), which utilizes data from the US Army Corps of Engineers to depict the 200-year floodplain.

Zone X and Shaded Zone X
Ares within Zone X and shaded Zone X (See Figure 7-2 are considered by FEMA to be areas of minimal hazard (500-year flood zone) or moderate hazard (100-500-year flood zone), respectively.

However, buildings in these zones could be flooded by severe, concentrated rainfall coupled with inadequate local drainage systems. Local stormwater drainage systems are not normally considered in a community’s flood insurance study. The failure of a local drainage system can create areas of high flood risk within these zones. Flood insurance is available in participating communities, but is not required by regulation in these zones.

Types of Floods
Over the course of the City’s history, floods have been the most frequent and considerable natural hazard affecting the City’s environment and economy. There are three different types of flood events in the Sacramento area: flash, riverine, and urban storm water. These floods are often the result of severe weather and excessive rainfall, either in the city or in areas upstream of the city (i.e., Sacramento River watershed in the northern portion of the valley).

The term flash flood describes localized floods of high volume and short duration, generally less than four hours. This type of flood usually results from a heavy rainfall on a relatively small drainage area. Precipitation of this sort usually occurs in the spring and summer. Dam failures also often result in flash flooding.

Sacramento City Limit
Sphere of Influence
Water
Flood Hazard Zones
A
AE
AE (Floodway)
AH
AO
A99
X
X (Shaded)
Source: City of Sacramento Commmunity Development Department, 2018; FEMA (NFHL) 2019 Z:\Projects\j1149901\MAPDOC\TBR\Section 7 Env Hazards\Figure7-2_FIRMDesignations.mxd 0 0.5 1 2 Mile
Figure 7-2
FIRM Designations
Zone A - Special 100-year Flood Hazard
Area. No base flood elevations determined.

Zone AE - Special 100-year Flood Hazard
Area. Base flood elevations determined.

Zone AE (Floodway)
Zone AH - Special 100-year Flood Hazard
Area. Flood depths of 1 to 3 feet (usually
areas of ponding); base flood elevations
determined.

Zone AO - Special 100-year Flood Hazard
Area. Flood depths of 1 to 3 feet (usually
sheet flow on sloping terrain); average depths
determined. For areas of alluvial fan flooding;
velocities also determined.

Zone A99 - Special 100-year Flood Hazard
Area. Area to be protected from 1% annual
chance flood by a Federal flood protection
system under construction; no base flood
elevations determined.

Zone X (Shaded) - Moderate Flood
Hazard Area. Areas of 0.2% annual chance
flood; 1% annual chance flood with average
depths of less than 1 foot or with rainage
areas less than 1 square mile; areas protected
by levees from 1% annual chance flood.

Zone X - Minimal Flood Hazard Area. Areas
determined to be outside 0.2% annual
chance flood.
16Th St 15Th St Land ParkDr
Grand Ave
Garden Hwy
La Riviera Dr
Broadway
Fair Oaks Blvd
Del Paso Blvd
Club Center Dr
Sheldon Rd
N 16Th St
K St
39Th St
Stockton Blvd
Gerber Rd
J St
San Juan Rd
Marconi Ave
Fulton Ave
Ethan Way Bruceville Rd
Elder Creek Rd
Franklin Blvd
Pocket Rd
Engle Rd
Greenhaven Dr
Auburn Blvd
Windbrid
R
ge Dr
ush River Dr
N 12Th St
Rio Linda Blvd
El Camino Ave
59Th St
Alta Arden Expy
Ha venside Dr
Fruitridge Rd
X St
American River Dr
Mckinley Blvd
Marysville Blvd
Watt Ave
24Th St
Gloria Dr
Norwood Ave
Eastern Ave
Elvas Ave
Richards Blvd
Hov n anian Dr
Danbrook D r
3Rd St
19Th St
9Th St 10Th St
12Th St
Florin Rd
Truxel Rd
Natomas Central Dr
Main Ave
21St St
W El Camino Ave
Hurley Way
F ol rin Perk ni s Rd
CollegeTown Dr
Freeport Blvd
Northgate Blvd
13Th St
Valley Hi Dr
Sutterville Rd
47Th Ave
Seamas Ave
Cottage Way
Ha r v a rd St
Nor ht borough Dr
Riverside Blvd
Roseville Rd
H St
Arden Way
5Th St
Jackson Rd
Bell Ave
Westlake Pkwy
Edison Ave
Kiefer Blvd
Mission Av e
French Rd
Q St P St
N St
L St
I St
W St
Arena Blvd
Bridgecross Dr
Azevedo Dr
Power Inn Rd Howe Ave
Northrop Ave
Meadowview Rd
Silver Eagle Rd
Del Paso Rd
Elk Grove F ol rin Rd
C St
Elsie Ave
Brookfield Dr
El Centro Rd
Raley Blvd
Natomas Blvd
Calvine Rd
Mack Rd
W Elkhorn Blvd
N Market Blvd
46Th St
Center Pkwy
E CommerceWay
Folsom Blvd
65Th St
65Th Street Expy
Ard en Garden
Exposition Blvd
SWatt Ave
Lone Tree Rd
Cosumnes River Blvd
Power Line Rd
Hedge Ave
Sacramento City Limit
Sphere of Influence
Water
Flood Hazard Zones
A
AE
AE (Floodway)
AH
AO
A99
X
X (Shaded)
CHHS Critical Facilies
Acute Psychiatric Hospital
Adult Day Health Care
Alternative Birthing Center
Chronic Dialysis Clinic
General Acute Care Hospital
Home Health Agency
Hospice
Intermediate Care Facility
-Dd/H/N/Cn/Iid
Primary Care Clinic
Rehabilitation Clinic
Skilled Nursing Facility
Surgical Clinic
Unlicensed/Other/Missing
Source: City of Sacramento Commmunity Development Department, 2018; FEMA (NFHL) 2019 J:\GISData\563_Sacramento\GIS\Projects\_ECR\Figure7-3_FIRMDesignations_CriticalFacilities.mxd 0 0.5 1 2 Mile
Figure 7-3
FIRM Designations and Critical Facilities
Zone A - Special 100-year Flood Hazard
Area. No base flood elevations determined.

Zone AE - Special 100-year Flood Hazard
Area. Base flood elevations determined.

Zone AE (Floodway)
Zone AH - Special 100-year Flood Hazard
Area. Flood depths of 1 to 3 feet (usually
areas of ponding); base flood elevations
determined.

Zone AO - Special 100-year Flood Hazard
Area. Flood depths of 1 to 3 feet (usually
sheet flow on sloping terrain); average depths
determined. For areas of alluvial fan flooding;
velocities also determined.

Zone A99 - Special 100-year Flood Hazard
Area. Area to be protected from 1% annual
chance flood by a Federal flood protection
system under construction; no base flood
elevations determined.

Zone X (Shaded) - Moderate Flood Hazard
Area. Areas of 0.2% annual chance flood; 1%
annual chance flood with average depths of
less than 1 foot or with rainage areas less
than 1 square mile; areas protected by levees
from 1% annual chance flood.

Zone X - Minimal Flood Hazard Area. Areas
determined to be outside 0.2% annual chance
flood.

The most common type of flood event is riverine flooding, which occurs when a watercourse exceeds its bank-full capacity. Riverine flooding is a result of prolonged rainfall that is combined with saturated soils from previous rain events or snowmelt, and is characterized by high peak flows of moderate duration and by a large volume of runoff. Riverine flooding occurs in river systems with tributaries that drain large geographic areas, often including many watersheds and subwatersheds. The duration of riverine floods varies from a few hours to many days. Factors that directly affect the amount of flood runoff include precipitation amount, intensity and distribution of rainfall, soil moisture content, channel capacity, seasonal variation in vegetation, snow depth, and water-resistance of the surface due to urbanization. In Sacramento County, riverine flooding typically occurs between November and April.

Urbanization may increase peak flow runoff, as well as the total volume of storm water runoff from a site. The increase is dependent upon the type of soil and its topography compared to the proposed land uses. The Natural Resources Conservation Service, a division of the U.S. Department of Agriculture, has surveyed the soil types in the city and county. Much of the county is characterized by soils with low permeability and high runoff rates. For specific information regarding soil types in the Policy Area, please refer to Section 7.1 Geological and Seismic Hazards.

Urban storm water flooding occurs when storm drains are not properly sized or experience temporary blockage. This flooding is typically localized. Refer to Section 4.1 Sewer/Storm Drainage for a discussion of storm drains in the Policy Area.

History of Flood Protection
In the late 1800s, the last two miles of the American River were straightened so that it would connect with the Sacramento River approximately 1 mile north of the original location to create faster flows to flush mining debris in the Sacramento River. Later, a series of significant floods resulted in officials raising the level of the City by about 10 feet. Massive floods between 1902 and 1909 prompted Congressional approval of financing for a comprehensive flood control plan in 1917.

With the passage of the Flood Control Act in 1944, the United States Army Corps of Engineers (USACE) began to build Folsom Dam. When the Folsom Dam was completed in 1956, it was intended to provide flood control for Sacramento up to a 500-year level storm. However, after the dam became operational, a series of record storms and flood flows resulted in downgrading the dam to flood control effectiveness only up to a 60-year storm. The Sacramento Area Flood Control Agency (SAFCA) was formed to address the Sacramento area’s vulnerability to catastrophic flooding. This vulnerability was exposed during the record flood of 1986 when Folsom Dam exceeded its normal flood control storage capacity and several area levees nearly collapsed under the strain of the storm. In response, the City of Sacramento, Sacramento County, Sutter County, the American River Flood Control District, and Reclamation District 1000 created SAFCA through a Joint Exercise of Powers Agreement to provide the Sacramento region with increased flood protection along the American and Sacramento rivers. In 1994, operations at Folsom Dam were adjusted and coordinated so that upstream reservoirs could assist in flood control measures, increasing the dam’s effectiveness.

In February 1996, the City prepared the Comprehensive Flood Management Plan to better protect citizens and property from major flood events. The Comprehensive Flood Management Plan was

TECHNICAL BACKGROUND REPORT

conceived as an implementation tool for the City Council to use in planning future modifications to policies and ordinances to enhance the level of flood protection in the City. Also in 1996, Congress approved funding of American River levee improvements. In 1999, Congress approved significant flood control projects, including the enlargement of the outlets in Folsom Dam, and raising the lowest levees on the American River, and Morrison Creek and its tributaries in southern areas of the city.

Natomas Basin and Natomas Levee Improvement Program
As of June 16, 2015, the City obtained new Flood Insurance Rate Maps (FIRMs) for the Natomas Basin remapped by FEMA with an A99 flood zone designation. The area, which was previously understood to offer between 100-year and 500-year protection (Shaded X Zone) was reclassified as within the 100-year flood hazard zone (AE Zone) after the Corps decertified the levee system protecting the basin. The remap required mandatory flood insurance for property owners and meant all new construction or substantial improvements to structures had to meet a 33-foot base flood elevation requirement. Prior to the Corps decertification, SAFCA implemented the Natomas Levee Improvement Program (NLIP) to upgrade the levee system protecting the Natomas Basin (City of Sacramento 2015). Construction on the NLIP began in 2007.

The principal objective of the NLIP is providing 200-year flood protection to the Natomas Basin.

As of June 16, 2015, SAFCA’s work under the NLIP had been completed. A report documenting compliance with FEMA Zone A99 (areas subject to inundation by the 1-percent-annual-chance flood event, but which will ultimately be protected upon completion of an under-construction federal flood protection system) was submitted to FEMA in November of 2012, and has since been authorized. Almost all of the Natomas Basin is presently mapped as A99.

The Army Corps of Engineers is currently improving the levees surrounding the Natomas Basin.

The work is expected to be completed by 2025. At the same time, a project is underway to certify the interior levees of the Natomas Basin to prevent any internal areas from being mapped as flood zones.

Folsom Dam Joint Federal Project
Folsom Dam’s auxiliary spillway, also known as the Joint Federal Project or JFP, is a component of Reclamation’s Central Valley Project. The cooperating agencies, Reclamation, U.S. Army Corps of Engineers, Sacramento Area Flood Control Agency, California Department of Water Resources and the Central Valley Flood Protection Board formed an unprecedented partnership to provide enhanced flood protection for the Sacramento area. The auxiliary spillway was constructed adjacent to Folsom's main concrete dam. Substantially completed in October 2017, it includes a 1,100-footlong approach channel beginning in Folsom Reservoir, a concrete control structure with six bulkhead and six radial gates, a 3,100-foot-long auxiliary spillway chute, and a stilling basin that acts as an energy dissipation structure as water discharges and enters the American River. The project was designed to improve the ability to manage large flood events by allowing more water to be safely released earlier in a storm event, thereby leaving more storage capacity in the reservoir to hold back the peak inflow when it arrives. With a peak inflow of 450,000 cfs in a 200-year design storm, releases can be held to 160,000 cfs or less, which can be safely conveyed with the improved

American River levees. The new auxiliary spillway also allows passage of the probable maximum flood without damaging the dam (Reclamation 2019).

American River Common Features Project
This project was designed to strengthen the levees along the American River so they can safely pass a flow of 160,000 cfs. The project has installed roughly 24 miles of slurry wall up to depths of 80 feet, raised levees to provide adequate freeboard, addressed slope stability issues, and corrected some erosion problems. The work has been completed in 2016 (ARCF 2016).

The Common Features General Reevaluation Report was completed in 2016. This report investigated the flood protection system along the American River, Natomas, the east side of the Sacramento River, and the levees in North Sacramento. The report identified proposed measures for improvements to waterways. The Sacramento River, from the levee at the American River to the North Beach Lake Levee, was proposed to have various improvements such as installation of cutoff walls, construction of bank protection and levee height increases, and geotextile reinforcements on soil embankments (ARCF 2016).

Sacramento Bank Protection Project
This program addresses long term erosion protection along the Sacramento River and its tributaries. Within the Sacramento area, bank protection measures typically consist of large angular rock placed to protect the bank topped with a layer of soil/rock material to allow vegetation re-grow back on the bank. In addition, dead trees may be added to the mixture for additional habitat value.

Construction under this program is ongoing, occurring at several identified hazard areas each year (SAFCA 2019).

South Sacramento Streams Group Project
This project addressed flooding from Morrison, Florin, Elder, and Unionhouse creeks. Flood walls have been constructed on Morrison Creek from Beach Lakes to Franklin Boulevard and on Unionhouse, Elder, and Florin creeks from the confluence with Morrison to Franklin Boulevard.

In 2012, the City and SAFCA widened Unionhouse Creek east of Franklin in order to pass the 100- year flood (SSS 2013). The widening of Florin Creek and construction of a detention basin was completed in 2014, and a small area near the confluence with Elder Creek remains mapped in a special flood hazard area. These improvements removed a large portion of the AH flood hazard zone and relieved the majority of residents from the flood insurance requirements. In 2016, the Florin Creek Park was expanded to include the previously vacant lot along Orange Avenue for the construction of two storm water basins, designed to capture flows from Florin Creek during extreme storm events, specifically for storms that have a 1% chance of occurring during any given year (100-year flood).

TECHNICAL BACKGROUND REPORT

Flood Risk from Dam Failure
Dams and reservoirs have been built throughout California for water supply, flood control, hydroelectric power and recreational facilities. The storage capacities of these reservoirs range from a few thousand acre-feet to five million acre-feet. There are numerous dams that may impact the people and resources of the city of Sacramento if they were to fail. These dams include Shasta on the Sacramento River, and Folsom and Nimbus on the American River.

When dams are constructed for flood control, they are usually engineered to contain a flood with a computed risk of occurrence. They are constructed of earth, rock, concrete, or mine tailings. Two factors that influence the potential severity of a full or partial dam failure include the amount of water impounded, and the density, type, and value of development and infrastructure located downstream. If a flood occurs that exceeds the dam’s designed flood capacity, that structure will either release water through its spillway or be overtopped. Overtopping is the primary cause of earthen dam failure. Dam failures can create flash floods that are catastrophic to life and property.

Other causes of dam failure include any one, or a combination of, the following causes:
• Prolonged periods of rainfall and flooding;
• Earthquake;
• Inadequate spillway capacity, resulting in excess overtopping flows; • Internal erosion caused by embankment or foundation leakage or piping; • Improper design;
• Improper maintenance;
• Negligent operation; and
• Failure of upstream dams on the same waterway.

For planning purposes, the State Office of Emergency Services, with information from the U.S.

Bureau of Reclamation and the California Department of Water Resources (DWR), has the responsibility to provide local governments with critical hazard response information, including flooding from dam inundation. The Office of Emergency Services has mapped the dam inundation zones in the City. The occurrence of dam inundation is based on extremely remote conditions.

The dam inundation map for Folsom Dam, the largest along the American River, shows that a majority of the Policy Area would be inundated with water beyond the capacity of the current flood control levees along the river if the dam failed. The floodwaters of the Folsom Dam system would affect the cities of Folsom and Sacramento and the surrounding unincorporated areas. The failure of the earthen dikes to the north of Folsom Dam would impact the relatively low areas of Sacramento County leading to Roseville. The water would then flow into the Natomas area of the City of Sacramento and then, depending on if the levees held, this water could fill the old Lake Natomas bed and possibly flood the North Highlands and Rio Linda areas. It would then flow into the American River basin, eventually arriving in downtown Sacramento.

The Sacramento Municipal Utility District inundation map indicates that a failure of the Rancho Seco Dam would flow to the Laguna Creek Basin and stop approximately at Stockton Boulevard.

Failure of Shasta Dam would affect populations south along the Sacramento River basin to about Knights Landing, where it would lose momentum. Since 1950, there have been no dam failures in Sacramento County (Sacramento County 2017).

Figure 4.65 in Section 4.3.4 of the Sacramento County Local Hazard Mitigation Plan (Sacramento County 2017) shows the inundation areas in the City of Sacramento and the County. The County’s Local Hazard Mitigation Plan can be viewed online at the following URL:
http://www.waterresources.saccounty.net/stormready/Pages/Local-Hazard-MititagtionReport.aspx Flood Risk from Levee Failure
Urban levees in the Sacramento River Basin have been evaluated by DWR based on the Corps’ Design and Construction of Levees Engineering Manual 1110-2-1913 and the DWR Interim Levee Design Criteria for Urban and Urbanizing Areas in the Sacramento-San Joaquin Valley, Version 4 (DWR 2017). This hazard classification process mapped the relative levee conditions in the Sacrament River Basin. Within the Policy Area, most levees along the American River, and along the Sacramento River between the American River confluence and the Pocket Area, are lower concern. In the northern portion of the Policy Area, the levees along the Sacramento River and the Natomas East Main Drainage Canal are of higher concern. There are also smaller sections of higher concern along the northern bank of the American River from the Natomas East Main Drainage Canal to the Sacramento River confluence, and the western bank of the Sacramento River through the Pocket Area.

In partnership with the County of Sacramento, the City of Sacramento has prepared a series of detailed maps of inundation patterns following hypothetical levees breaks. These maps include flood depths, rescue areas, evacuation areas, and potential evacuation routes. Places expected to fill with between 1 and 26 feet of water within 10 days are identified as evacuation areas. Where flood waters may reach a depth of at least 1 foot within 2 hours of a levee failure, people are more likely to be stranded and require rescue; these areas are mapped as rescue areas. The location of the rescue areas depends on the modeled levee breeches.

Potential Future Flood Hazards from Climate Change
The scientific community is continuously increasing its understanding of the effects of global climate change, including the potential for an increase in flood hazards from altered meteorology and sea level rise. State, regional, and local governments in California have also been developing their awareness of the potential statewide and region-specific risks. It is important, especially for areas protected from flooding by levees, to consider the potential for climate change to adversely affect flood risks. California’s Fourth Climate Change Assessment, completed in 2018, comprises a wide-ranging body of technical reports, including climate change scenarios to identify regional vulnerabilities and localized adaptation strategies in California. In the Sacramento Valley, annual precipitation is expected to remain about the same or to increase slightly this century. However, the increased intensity of extreme storms makes the return of conditions that would trigger an

TECHNICAL BACKGROUND REPORT

extreme flood event more likely in the next 40 years. Dry years are expected to become even drier and wet years are expected to become even wetter in the next several decades. Weather conditions are expected to shift more rapidly. New extremes will challenge water storage and flood control systems, which were originally designed for the historical climate patterns. Future wet seasons will have more precipitation as rain than snow, primarily due to higher temperatures. In particular, higher extreme rainfall will bring more surface runoff and less groundwater recharge, requiring surface water reservoirs to operate at a lower capacity to ensure flood mitigation (Houlton and Lund 2018).

Global temperature increases have driven both ice melt on land and thermal expansion of ocean water, contributing to the rise of sea levels. Sea level rise at the end of the century in the San Francisco Bay area is likely to be 2.5 feet (50th percentile) to 4 feet (95th percentile). Areas around the Sacramento-San Joaquin Delta will have more flood potential, as higher sea level will also push salty ocean waters into the fresher waters of the Sacramento-San Joaquin Delta. Sea-level rise could exacerbate flood risk in low-lying, levee-protected areas close to the Delta (Houlton and Lund 2018).

Predictions of more extreme future flooding are echoed by the 2017 Central Valley Flood Protection Plan (CVFPP) Update. The 2017 CVFPP Update is consistent with the best available science produced as part of California’s Fourth Climate Change Assessment. However, the CVFPP also explains that the development flood hydrology modeling that factors in climate change is a complicated exercise that must account for many uncertainties, and more work is needed to refine inland climate change, sea-level rise projections, and the ways they will interact. The 2017 CVFPP Update used the latest projections that include some scientific uncertainty about the timing and severity of climate change impacts. DWR plans to update the climate change analysis as additional information is developed in future updates to the CVFPP for continued evolution toward a more resilient and sustainable flood management system (DWR 2017).

Flooding Information Required in the General Plan
California Government Code Section 65302 requires General Plans to include a series of floodrelated exhibits, including the 200-year flood plain (as illustrated in Figure 7-3) and the FIRM maps with hazard area zones (as provided in Figure 7-2). There must also be discussion on existing and planned development in flood hazard zones. Additional required information is described briefly below with web links to the maps.

California Water Code Section 9610(d) Maps. As directed by California Water Code Section 9610(d), DWR has developed and released floodplain maps for existing urban and adjacent urbanizing areas in the event of the failure of the SPFC facilities during flooding that has a 1-in-200 chance of occurring in any given year. The maps developed pursuant to California Water Code Section 9610(d) do not affect FEMA’s National Flood Insurance Program (NFIP) implementation or the target level of flood protection for USACE’s federal studies. (DWR 2013) Figure 7-3 reflects DWR’s most current data regarding the 200-year flood plain.

Designated Floodway Maps. The Designated Floodway refers to the channel of the stream and that portion of the adjoining floodplain reasonably required providing for the passage of a design flood;

it is also the floodway between existing levees as adopted by the Central Valley Flood Protection Board (Board) or the Legislature. The Board, under Section 8609 of the Water Code, has the authority to designate floodways in the Central Valley. California Code of Regulations, Title 23, Waters, provide further details of the Board’s regulatory authority. Specifically, Title 23, Article 5, Section 107 regulates uses in Designated Floodways. California Department of Water Resources (DWR) includes designated floodway maps on their internet Best Available Maps (BAM) site. The site is an interactive site that maps can be downloaded from here: http://gis.bam.water.ca.gov/bam/ Floodplain Awareness Maps. The intent of the DWR’s Awareness Floodplain Mapping project is to identify all pertinent flood hazard areas by 2015 for areas that are not mapped under FEMA’s National Flood Insurance Program (NFIP) and to provide the community and residents an additional tool in understanding potential flood hazards currently not mapped as a regulated floodplain. The awareness maps identify the 100-year flood hazard areas using approximate assessment procedures. These floodplains are shown simply as flood prone areas without specific depths and other flood hazard data. Currently, flood maps for areas within the City of Sacramento are available at the following website: https://www.cityofsacramento.org/Utilities/Drainage/FloodReady/Maps.aspx Additional flood mapping data can be obtained with the BAM site link above.

Levee Flood Protection Zone Maps. The Levee Flood Protection Zone (LFPZ) maps were developed by DWR as required by Water Code Section 9130 to increase awareness of flood risks associated with State-Federal levees. The maps should not be confused with FEMA's FIRMs used for the National Flood Insurance Program. They are not showing the same type of flood hazard and they were prepared for different purposes. LFPZ maps estimate the maximum area that may be flooded, if a State-Federal levee fails, with flows at maximum capacity that may reasonably be conveyed. These maps specifically focus on flood risks associated with State-Federal levees. Lands within the Levee Flood Protection Zone may also be subject to flooding due to other factors including, but not limited to, levee failure at flows less than design capacity, overtopping of a levee, drainage problems, or other types of flooding from sources on the land side of the levee. Lands not mapped within a LFPZ may also be subject to flood risk. The LFPZ for the Sacramento River Basin is available at DWR’s website: http://gis.lfpz.water.ca.gov/lfpz/ Sacramento Flood Maps. The City and County of Sacramento have prepared detailed maps showing hypothetical levee breaks, inundation levels and the time it would take for waters to rise in affected neighborhoods, and rescue and evacuation zones. These maps are available at the following URL: https://www.cityofsacramento.org/Utilities/Drainage/Flood-Ready/Maps The breaks on these maps are hypothetical and do not indicate a weakness in the levees at that particular location. The colorful maps come in pairs. One map shows where the water would flow over time and how deep it would get given the hypothetical flooding scenario. Each sample levee break location represents a hypothetical failure along that general stretch of levee. They do not depict known weak points or other issues that suggest a break would occur there versus anywhere else. The corresponding map shows the evacuation areas and evacuation routes and rescue areas.

Dam Inundation Map. Inundation Maps were developed by DWR pursuant to Water Code Section 6161. These maps show flooding that could potentially result from failure of a dam or its

TECHNICAL BACKGROUND REPORT

appurtenant structures. The Division of Safety of Dams approves inundation maps, while the California Office of Emergency Services (Cal OES) approves related emergency action plans.

Approved Inundation Maps are available at DWR’s website:
https://fmds.water.ca.gov/maps/damim/
As mentioned above, the inundation areas in the City of Sacramento and the County are shown in Figure 4.65 in Section 4.3.4 of the Sacramento County Local Hazard Mitigation Plan (Sacramento County 2011), which can be viewed online at:
http://www.waterresources.saccounty.net/Pages/Reports-DMA.aspx Historic Flooding. The Sacramento County Local Hazard Mitigation Plan includes Figure F.11 that illustrates the history of the City of Sacramento floodplains from prior to 1986 to 2007 and beyond. The Figure includes the history of the flood hazard mapping process for the City, as well as the construction of various flood protection facilities. Figure F.11 is on page F.41 of Annex F of the Local Hazard Mitigation Plan, which is available online at the following URL:
http://www.waterresources.saccounty.net/Pages/Reports-DMA.aspx For a broader discussion of flooding history within the statewide context, Attachment C of DWR’s California’s Flood Future provides a history of flood management in California. (DWR 2013) Attachment C is available at the following URL:
http://www.water.ca.gov/sfmp/resources/Attachment_C_History.pdf

REGULATORY CONTEXT
Federal
U.S. Army Corps of Engineers.

USACE has nationwide responsibility for flood management. In California, flood management is performed through a combination of projects operated by USACE, Reclamation, the State, local maintaining agencies, and private proponents, all under official USACE flood management plans.

Laws and regulations related to USACE functions are described below.

Flood Control Acts
The following Flood Control Acts have been enacted which affect the Sacramento region. • The Flood Control Act of 1917 was enacted in response to costly floods in the lower Mississippi Valley, the Northeast, and the Ohio and Sacramento valleys between 1907 and 1913. It authorized the formation of the State/federal Sacramento River Flood Control Project which includes most of the levees, weirs, control structures, bypass channels, and river channels that make up the SPFC in accordance with initial plans contained in the 1910 California Debris Commission report as modified in 1913 and subsequently modified and extended by the Acts of 1928, 1937, and 1941.

• The Flood Control Act of 1936 was enacted as part of the federal New Deal legislation to stimulate the national economy during the Great Depression. This act declared flooding to be a menace to the national welfare and directed the federal government (USACE and the U.S. Department of Agriculture) to improve, or participate in improving, navigable waters or their tributaries if the benefits would exceed costs, and if the lives and social security of people would be adversely affected. The legislation also enabled the federal government to enter into compacts with states or other local agencies for flood management projects. • The Flood Control Act of 1944 was passed (and amended in 1950) to formally assign the duties of flood management and navigation to USACE, and for federal authorization of projects on the Sacramento and San Joaquin rivers and tributaries. The act authorized construction of Folsom Lake in the Sacramento River Flood Control System. • The Flood Control Act of 1960 authorized the Sacramento River Bank Protection Project to preserve the integrity of the Sacramento River Flood Control Project levee system.

Operations and Maintenance Controls, Flood Control Projects The maintenance and operation of federal project levees is discussed in Title 33, Section 208.10, of the Code of Federal Regulations (33 CFR 208.10), Local Flood Protection Works; Maintenance and Operation of Structure and Facilities. This regulation outlines federal regulatory requirements for the maintenance and operation of structures and facilities that compose the State/federal flood protection system. It, along with Section 14 of the Rivers and Harbors Appropriation Act (Title 33, Section 408 of the U.S. Code), is the basis for requiring permission from USACE before any major change in maintenance and operations at federal project levees and other facilities such as pumping plants can occur. It also specifies the responsibilities of the maintaining superintendent, necessary inspections, operations and maintenance reporting requirements, maintenance requirements, and high-water/flood operations for local maintenance of federal structures and flood facilities.

Water Resources Development Acts
Several Water Resources Development Acts have been enacted, which affected funding and environmental goals for USACE flood management projects. • The Water Resources Development Act (WRDA) of 1986 was the first major “omnibus” projects authorization bill for USACE in 16 years and authorized more than 270 USACE projects for study or construction. It also contained environmental provisions addressing issues such as mitigation, enhancement and modification of USACE projects to improve the environment and authorized more than $500 million in fish and wildlife mitigation/enhancement features. The WRDA of 1986 directed the Secretary of the Army to issue new guidelines for crediting against the nonfederal share of project costs for flood work carried out by local interests. Prior cost-share provisions for a cash contribution of 5 percent of the cost of the project and the requirement for local provision of lands, easements, rights-of-way, relocations and disposals (LEERD) remained unchanged. The

TECHNICAL BACKGROUND REPORT

WRDA of 1986 set a 25 percent minimum to 50 percent maximum contribution with LEERD and the cash contribution credited toward this percentage cost share. • The WRDA of 1990 added environmental protection as a primary mission for USACE. The WRDA of 1990 amended the WRDA of 1986 to treat as construction the costs of planning and engineering for projects for which nonfederal interests contributed 50 percent or more of the cost of the feasibility study.
• The WRDA of 1996 amended cost sharing requirements. Nonfederal sponsors are required to contribute a minimum of 35 percent to a maximum of 50 percent. • The WRDA of 1999 amended the Flood Control Act of 1936 to authorize funds contributed by states and other political subdivisions for environmental restoration work, in addition to flood management.

Federal Emergency Management Agency (FEMA)
FEMA is responsible for maintaining minimum federal standards for floodplain management within the United States and territories of the United States. As discussed below, FEMA plays a major role in managing and regulating floodplains, which are defined as lowland and relatively flat areas adjoining inland and coastal waters that are subject to a 1-percent or greater chance of flooding in any given year (100-year floodplain).

National Flood Insurance Act of 1968
The National Flood Insurance Program (NFIP) offers flood insurance to homeowners, renters, and business owners in participating communities. These communities agree to adopt and enforce ordinances that meet or exceed requirements established by FEMA to reduce the risk of flooding.

FEMA administers the National Flood Insurance Program and delineates areas subject to flood hazard on FIRMs for each participating community. The FIRMs show Special Flood Hazard Areas (areas subject to inundation by a flood that has a 1 percent chance or greater of being equaled or exceeded in any given year). The FIRM zones within the policy area are identified on the FIRM map shown in Figure 7-2 and are defined by FEMA as follows. • Zone A: Areas subject to inundation by the 1-percent-annual-chance flood event generally determined using approximate methodologies. Because detailed hydraulic analyses have not been performed, no Base Flood Elevations (BFEs) or flood depths are shown.

Mandatory flood insurance purchase requirements and floodplain management standards apply.
• Zone A99: Areas subject to inundation by the 1-percent-annual-chance flood event, but which will ultimately be protected upon completion of an under-construction Federal flood protection system. These are areas of special flood hazard where enough progress has been made on the construction of a protection system, such as dikes, dams, and levees, to consider it complete for insurance rating purposes. Zone A99 may only be used when the flood protection system has reached specified statutory progress toward completion. No

Base Flood Elevations (BFEs) or depths are shown. Mandatory flood insurance purchase requirements and floodplain management standards apply. • Zones AE: Areas subject to inundation by the 1-percent-annual-chance flood event determined by detailed methods. Base Flood Elevations (BFEs) are shown. Mandatory flood insurance purchase requirements and floodplain management standards apply. • Zone AH: Areas subject to inundation by 1-percent-annual-chance shallow flooding (usually areas of ponding) where average depths are between one and three feet. Base Flood Elevations (BFEs) derived from detailed hydraulic analyses are shown in this zone.

Mandatory flood insurance purchase requirements and floodplain management standards apply.
• Zone AR: Areas that result from the decertification of a previously accredited flood protection system that is determined to be in the process of being restored to provide base flood protection. Mandatory flood insurance purchase requirements and floodplain management standards apply.

The areas of minimal flood hazard, which are the areas outside the SFHA and higher than the elevation of the 0.2-percent-annual-chance flood, are labeled Zone C or Zone X (unshaded). The 100-year flood is the national minimum standard to which communities regulate their floodplains through the National Flood Insurance Program.

Flood Insurance Reform Act of 2012 (Biggert-Waters Act) In 2012, Congress passed this act which calls on FEMA to make a number of changes to the way the NFIP is run. The legislation requires the NFIP to raise flood insurance rates to reflect true risk, make the program more financially stable, and change how FIRM updates impact policyholders.

The changes will mean premium rate increases for policyholders over time.

State
California Department of Water Resources (DWR)
DWR was created after severe flooding occurred across Northern California in December 1955.

DWR established the Division of Flood Management in November 1977, although flood forecasting and flood operations were integral functions of DWR and its predecessor agencies (e.g., Department of Public Works) for about a century. Today, the functions of statewide flood forecasting, flood operations, and other key flood emergency response activities are the primary missions of the Division's Hydrology and Flood Operations Office. As mandated by the California Water Code, DWR has responsibility for the supervision of dams and reservoirs, which is delegated to the Division of Safety of Dams.

DWR’s Division of Flood Management, through its Central Valley Flood Planning Office, and the FloodSAFE Program Management Office are carrying out the work of the agency’s FloodSAFE California Program, which partners with local, regional, State, Tribal, and federal officials in

TECHNICAL BACKGROUND REPORT

creating sustainable, integrated flood management and emergency response systems throughout California. Flood control legislation of 2007 and 2008 directed DWR to prepare a flood control system status report for the SPFC and CVFPP.

Central Valley Flood Protection Board (CVFBP)
The CVFPB was authorized by Sections 8520–9110 of the California Water Code and established in 1911. Section 8590 of the Water Code describes the Board’s powers:

To carry out the primary State interest described in Section 8532 of the California Water Code, the Board may do any of the following:
a) Acquire either within or outside the boundaries of the drainage district, by purchase, condemnation or by other lawful means in the name of the drainage district, all lands, rights-of-way, easements, property or material necessary or requisite for the purpose of bypasses, weirs, cuts, canals, sumps, levees, overflow channels and basins, reservoirs and other flood control works, and other necessary purposes, including drainage purposes.
b) Construct, clear, and maintain bypasses, levees, canals, sumps, overflow channels and basins, reservoirs and other flood control works.
c) Construct, maintain, and operate ditches, canals, pumping plants, and other drainage works.
d) Make contracts in the name of the drainage district to indemnify or compensate any owner of land or other property for any injury or damage caused by the exercise of the powers conferred by this division, or arising out of the use, taking, or damage of any property for any of the purposes of this division. e) Collaborate with State and federal agencies, if appropriate, regarding multiobjective flood management strategies that incorporate agricultural conservation, ecosystem protection and restoration, or recreational components.

California Central Valley Flood Protection Act of 2008
In 2007, the California Legislature passed a package of several related flood bills, which included a requirement to prepare a Central Valley Flood Protection Plan (CVFPP). Additional requirements for the CVFPP were added in the California Central Valley Flood Protection Act of 2008 (Senate Bill 5), which also defined objectives, codified in California Water Code Section 9616, for reducing the risk of flooding in the Central Valley. The 2007 and 2008 legislation requires DWR to prepare, and update every five years, the CVFPP. The plan is intended to describe both structural and

nonstructural means for improving the performance of the levees, weirs, bypasses, reservoirs, and other State Plan of Flood Control facilities.

The Central Valley Flood Protection Act requires that urban and urbanizing areas within the planning area make certain findings related to the provision of a minimum 200-year level of flood protection before making certain land use decisions. The legislation also requires each city and county within the Sacramento-San Joaquin Valley to amend its general plan to include data, analysis, goals, and policies for protection of lives and property, and related feasible implementation measures. With implementation of the Sacramento River Basin major capital improvements under consideration in the 2017 CVFPP, including urban levee improvements on the northern bank of the American River and along NEMDC, the Policy Area would be able to meet the required findings for an urban level of flood protection (DWR 2017b).

The Urban Levee Design Criteria (ULDC) was developed in response to requirements from the Central Valley Flood Protection to strengthen the link between flood management and land use relating to 200-year level of flood protection. The ULDC provides among other things criteria and guidance for designing, evaluating, operating, and maintaining levees including “right-of-way” criteria to allow adequate room for maintenance, inspection, and patrolling to meet requirements of California Government Code sections 65865.5, 65962, and 66474.5. The Act relies on the due diligence of cities and counties to incorporate flood risk considerations into floodplain management and planning. The ULDC is available to read online at the following URL:
https://cawaterlibrary.net/document/urban-levee-design-criteria/ Water Code Sections 9602 and 9621
The 200-year floodplain is defined by this Water Code Section 9602 as the minimum urban level of flood protection in the Sacramento-San Joaquin Valley. Water Code Section 9621 requires counties to collaborate with cities to develop flood emergency plans.

Government Code Sections 65302 and 65860
Under these statutes, cities and counties are required to amend the land use, conservation, and safety elements of their general plans to address flood risks. The code requires annual review of the land use element for areas identified by FEMA or DWR floodplain mapping. The code also stipulates that the safety element must establish a set of comprehensive goals, policies, objectives, and feasible implementation measures to protect communities from the unreasonable risks of flooding. Zoning ordinances must then be amended for consistency with the modified general plans.

Government Code Sections 65865, 65962, and 66474
These statutes pertain to areas within a flood hazard area and serve to limit their development, except where certain findings can be made related to provision of a 200-year level of flood protection in urban and urbanizing areas or a 100-year level of flood protection in non-urbanized areas.

TECHNICAL BACKGROUND REPORT

Local Flood Protection Act of 2008
This act allows, but does not require, a local agency to prepare a local plan for flood protection. If developed, these local plans should be consistent with the CVFPP.

State of California Building Code (CBC)
The State of California Building Code (CBC) contains requirements for constructing structures in flood hazard areas. Flood hazard areas are established as areas of special flood hazard as identified by the Federal Emergency Management Agency’s Flood Insurance Study as adopted by the local authority having jurisdiction where the project is located, as amended or revised with the accompanying Flood Insurance Rate Map (FIRM). The CBC contains standards for the construction of new buildings, structures, and portions of buildings and structures, including substantial improvements and restoration of substantial damage to buildings and structures. These structures are to be designed and constructed to resist the effects of flood hazards and flood loads (CBC Section 1612A).

Senate Bill 379
Adopted on October 8, 2015, SB 379 requires all cities and counties to include climate adaptation and resiliency strategies in the Safety Elements of their General Plans upon the next revision beginning January 1, 2017. The bill requires the climate adaptation update to include a set of goals, policies, and objectives for their communities based on the vulnerability assessment, as well as implementation measures, including the conservation and implementation of natural infrastructure that may be used in adaptation projects. If a city or county has not adopted a local hazard mitigation plan, then the safety element of the general plan must be updated to address climate adaptation and resiliency strategies by January 1, 2022.

California Building Resilience against Climate Effects (CalBRACE) The CalBRACE project provides resources and technical assistance for state and local public health departments to enhance climate resilience and climate adaptation capacity. The CalBRACE project focuses on preparing for three major climate impacts: increasing temperature, wildfire, and sea level rise (including flooding). With knowledge of short and long-range climate projections, information on community vulnerability, and environmental health data, state and local agencies are better able to incorporate climate change into public health planning and response activities (CDPH 2020).

Local
Sacramento Area Flood Control Agency Act of 1990
Sacramento Area Flood Control Agency (SAFCA) was formed as a Joint Exercise of Powers Agreement to address the Sacramento area’s vulnerability to catastrophic flooding. SAFCA’s mission is to provide the region with at least a 100-year level of flood protection as quickly as possible while seeking a 200-year or greater level of protection over time. Under the Sacramento

Area Flood Control Agency Act of 1990, the California Legislature has given SAFCA broad authority to finance flood control projects and has directed the Agency to carry out its flood control responsibilities in ways that provide optimum protection to the natural environment.

City of Sacramento Office of Emergency Management
The City of Sacramento Office of Emergency Management (OEM) coordinates the City’s overall preparedness and response for all hazards impacting the City. OEM is responsible for alerting and notifying appropriate agencies when disaster strikes; coordinating all agencies that respond; ensuring resources are available and mobilized in times of disaster; developing plans and procedures in response to and recovery from disasters; and developing and providing preparedness materials for the public.

American River Flood Control District
The American River Flood Control District (ARFCD), formed in 1927 by the State Legislature, maintains 40 miles of levees along the American River and portions of Steelhead, Arcade, Dry Creek, and Magpie Creek.

Reclamation District 1000
Reclamation District 1000 (RD1000) is a State-Legislature-created special district that has been providing flood protection and public safety to the Natomas Basin since 1911. RD 1000 is responsible for maintaining over 40 miles of levees surrounding the perimeter of the Natomas Basin to keep floodwaters from the Sacramento River, American River, Natomas East Main Drain Canal, Pleasant Grove Creek Canal, and Natomas Cross Canal out of the basin. RD 1000 also operates and maintains hundreds of miles of canals and seven pump stations to collect and safely discharge rain that falls within the Natomas basin back into the river.

Maintenance Area 9
Maintenance Area 9 (MA9) is operated by the State of California, Department of Water Resources.

MA9 maintains the levees on the east side of the Sacramento River downstream of Sutterville Road to Snodgrass Slough in the County.

City of Sacramento Department of Utilities
The City of Sacramento Department of Utilities maintains the levees on the Sacramento River from the confluence with the American River downstream to Sutterville Road. The City also maintains the levees/floodwalls within the South Sacramento Streams Group (Morrison Creek).

TECHNICAL BACKGROUND REPORT

7.3 Fire Hazards

INTRODUCTION
This section provides a general description of the urban and wildland fire hazards that exist within the Policy Area, based upon information provided within the City’s 2018 Emergency Operations Plan (City of Sacramento 2018), and the 2016 Sacramento Countywide Local Hazard Mitigation Plan Update (Sacramento County 2016. Resources available to respond to fires are presented in Section 5.2 Fire Protection; City and County response measures to wildland fires and other emergencies are detailed in Section 7.6 Emergency Response.

EXISTING CONDITIONS
Fire season in the Policy Area extends from early spring to late fall. Hazards arise from a combination of hot weather, an accumulation of vegetation, and low moisture content of the air. If coupled with high winds and years of drought, these conditions can compound the potential impact of a fire.

Major fires are typically classified as either urban fire or wildland fire. A third classification, the urban wildfire, is beginning to be recognized as the population of the Policy Area becomes less concentrated in urban areas and disperses into the more heavily-vegetated wildland/urban interface.

There are three major factors that sustain wildfires and allow for predictions of an area’s potential to burn: fuel; topography; and weather. Fuel is the material that feeds a fire and is a key factor in wildfire behavior. Fuel is classified by type and by volume. Fuel sources are diverse and include everything from dead tree needles and leaves, twigs, and branches to dead standing trees, live trees, brush, and cured grasses. Man-made structures and other associated combustibles are also considered fuel sources. The type of prevalent fuel directly influences the behavior of wildfire. Light fuels, such as grasses, burn quickly and serve as a catalyst for fire spread. An area’s terrain and land slopes, or topography, also affect its susceptibility to wildfire spread. Fire intensities and rates of spread increase as slope increases due to the tendency of heat from a fire to rise via convection.

Weather components such as temperature, relative humidity, wind, and lightening also affect the potential for wildfire. High temperatures and low relative humidity dry out the fuels that feed the wildfire, creating a situation where fuel can more readily ignite and burn more intensely. Therefore, the threat of wildfire increases during periods of drought. Wind is the most influential weather factor. The greater a wind, the faster a fire will spread, and the more intense it will be. Although significant winds can occur in the Policy Area, the winds most frequently occur during the winter storm season, not during the summer fire season.

Grass fires are an annual threat in the unincorporated areas of Sacramento County, especially within recreational areas such as the American River Parkway (Sacramento County 2016). The State of California has designated the eastern edge of Sacramento County, over 10 miles east of the Policy Area, as a moderate fire hazard zone. There are no state fire hazard areas in the Policy Area (City of Sacramento 2015).

Urban Fire Hazard
Although structural fires can occur in any developed area, there are two areas that are particularly susceptible to fire hazard: older commercial buildings in Downtown Sacramento; and older dwelling units in lower socio-economic neighborhoods. Older building standards and fire codes used in the construction of these structures, use of non-fire-resistive construction materials, and lack of internal sprinklers or other fire safety systems may make these structures more susceptible to fires.

Wildland Fire Hazard
Sacramento is a developed city that has relatively few remaining wildland areas. Areas of the city that have been identified as fairly susceptible to an urban wildfire are generally along the American River Parkway from Watt Avenue to the Sacramento River and along the Garden Highway in the Natomas area. The American River Parkway near Cal Expo is the only wildfire hazard area within the city that is recognized in the Multi-Hazard Mitigation Plan (Sacramento County 2016).

The American River Parkway is a stretch of dense trees and brush on both sides of the American River. The property is owned by the State of California, maintained by the Sacramento County Parks Department, and protected from fire by the Sacramento City Fire Department. The area consists of natural habitat with no fire break areas. Fire equipment access is difficult and limited to the paved stretches of the bicycle path. Some of the potential fire areas are not accessible to vehicular traffic.

If a wildland fire were to occur along the American or Sacramento rivers it could spread into nearby neighborhoods resulting in catastrophic fires, similar to what occurred recently in the cities of Santa Rosa, Paradise, Redding, and Ventura. The presence of fuel (e.g., trees, landscaping) in these areas immediately adjacent to buildings could help contribute to the spread of an out-of-control wildfire.

To meet the challenge of wildland fires in undeveloped portions of the Policy Area, Metro Fire maintains and operates an air operations program. Included as part of Metro Fire’s scope, is the operation of one firefighting/rescue helicopter located at Station 114 (McClellan Air Field).

REGULATORY CONTEXT
Federal
International Fire Code
The International Fire Code (IFC), created by the International Code Council, is the primary means for authorizing and enforcing procedures and mechanisms to minimize fire threat to public health and safety. Topics addressed in the code include fire department access, fire hydrants, automatic sprinkler systems, fire alarm systems, fire and explosion hazards safety, hazardous materials storage and use, provisions intended to protect and assist fire responders, industrial processes, and many other general and specialized fire-safety requirements for new and existing buildings and premises.

The IFC uses a hazard classification system to determine what measures are required to protect

TECHNICAL BACKGROUND REPORT

against structural fires. These measures may include construction standards, separations from property lines, and specialized equipment.

State
California Fire Code (Title 24, Part 9, California Code of Regulations) The California Fire Code is Part 9 of the California Code of Regulations, Title 24, also referred to as the California Building Standards Code. The California Fire Code prescribes regulations consistent with nationally-recognized good practices for safeguarding life and property from the hazards of fire explosion and dangerous conditions arising from the storage, handling, and use of hazardous materials and devices, and from conditions hazardous to life or property in the use or occupancy of buildings or premises and provisions to assist emergency response personnel. The most recent edition of Title 24 was published on July 1, 2019, with an effective date of January 1, 2020.

Local
County of Sacramento Municipal Code
Chapter 17.04 (California Fire Code). This chapter adopts the California Fire Code, Title 24, California Code of Regulations, Part 9, which prescribes regulations governing conditions hazardous to life and property from fire or explosion. The provisions thereof are applicable within the limits of Sacramento County, except for any inconsistent regulations and ordinances adopted pursuant to applicable law by a fire protection district or a community service district having a fire department within the County that are controlling within that district’s jurisdictional areas.

Chapter 17.12 Weed Control. This chapter declares that the uncontrolled growth and/or accumulation of grass, weeds or other materials or obstructions on sidewalks, streets, and on lands or lots is dangerous or injurious to neighboring property and the health or welfare of residents. In addition, this is a public nuisance in that it creates a condition that reduces the value of private property, promotes blight and deterioration, invites plundering, creates fire hazards, constitutes an attractive nuisance creating a hazard to the health and safety of minors, creates a harbor for rodents and insects and is injurious to health, safety and general welfare. This chapter provides regulations associated with enforcement and inspection of such hazards, such as required firebreaks.

City of Sacramento City Code. The Sacramento City Code contains various titles, chapters, and sections that are associated with fire hazards in that they prescribe regulations to protect the life and safety of residents and property through appropriate building construction standards, weed abatement procedures, and other techniques. Those listed below are directly applicable to fire hazards within the Policy Area.

Chapter 15.36 California Fire Code Adopted. This chapter, also known as the “fire prevention code” of the city, generally adopts the California Fire Code with deletions, amendments, and additions, as appropriate.

Section 8.100.630 Fire Hazard. Listed under Chapter 8.100 (Housing Code), which provides minimum requirements for the protection of life, limb, health, property, safety, and welfare of the general public and the owners and occupants of residential buildings, this section defines fire hazards. Specifically, “any building or portion thereof, device, apparatus, equipment, combustible waste, or vegetation which, in the opinion of the city fire marshal or his or her deputy, is in such a condition as to cause a fire or explosion or provide a ready fuel to augment the spread and intensity of fire or explosion arising from any cause, shall be deemed to be a fire hazard.”

7.4 Aviation Hazards

INTRODUCTION
This section provides a brief description of airports operating in and near the plan area.

Information has been derived from several sources, including the airport master plans. Aviation facilities are further discussed in Section 3.5.

EXISTING DOCUMENTS
Aviation System
Executive Airport, located in South Sacramento, is the only airport in the Policy Area. Three additional airports have safety zones that include parts of the Policy Area: Rio Linda Airport; McClellan Airfield; and Sacramento International Airport. Other nearby airports include Mather Field, located east of the Policy Area, and Franklin Field, located south of the Policy Area. A brief summary of physical and operational conditions the airports that maintain safety zones in the Policy Area is provided below. Figure 3-9 identifies airport locations.

Executive Airport
Executive Airport is located on Freeport Boulevard in South Sacramento. The airport is owned by the City of Sacramento and operated by the Sacramento County Airport System, which has overall responsibility for the operation of the airport on a daily basis. Executive Airport is the area’s principal facility for accommodating general aviation. Executive Airport supports aircraft ranging from single engine aircraft to helicopters, larger business and corporate turbine (jet) powered aircraft, and commercial passenger charter flights. The airport does not have scheduled commercial passenger service activity. It has three intersecting runways; the largest runway is 5,503 feet long and 150 feet wide. The airport does not currently have an aircraft rescue and firefighting facility; however, the City of Sacramento Fire Department is located off Freeport Boulevard, immediately northwest of the airport. This information has not changed since the 2015 Technical Background Report (TBR) was prepared for the City’s 2035 General Plan (City of Sacramento 2015).

TECHNICAL BACKGROUND REPORT

Rio Linda Airport
Rio Linda Airport is privately owned and is not part of the Sacramento County Airport System. It is located one mile south of Rio Linda and immediately north of the Policy Area. It has one runway that is approximately 2,625 feet long and 42 feet wide. A total of 139 aircraft are based at the airport, with most being single-engine planes (AirNav 2019a). Rio Linda Airport serves local general aviation and transient general aviation purposes.

McClellan Airfield
McClellan Airfield, formerly McClellan Air Force Base, is also located outside of the city but is adjacent to the northeast corner of the Policy Area. McClellan Airfield, although managed by the County Airport System, is under the County’s Department of Economic Development and Intergovernmental Affairs. McClellanAirfield is owned by Sacramento County and has one runway that is 10,599 feet long and 150 feet wide, and four helipads that are each 57 feet long and 57 feet wide The airfield has about 130 aircraft with 33 single-engine, 57 multi-engine, and 12 jet-engine airplanes, 24 helicopters, and four military aircraft. McClellan Airfield serves air taxi purposes, military, transient general aviation, and limited local general aviation purposes (AirNav 2019b).

Sacramento International Airport
Sacramento International Airport provides commercial air service for the region. Sacramento International Airport is located outside the Policy Area, 10 miles northwest of downtown Sacramento. The airport is owned by Sacramento County and has two runways. The longest runway is 8,605 feet long and 150 feet wide. Sacramento International Airport serves millions of passengers each year, and passenger air traffic is anticipated to increase by 3.0 percent per year in the future.

Sacramento International serves commercial, local general aviation, air taxi, and limited military purposes. The Sacramento County Department of Airports is preparing an update of its 2007 Sacramento International Airport Master Plan, which establishes a program for the improvement of existing facilities and the development of facilities at the Airport over the next 20 years. A comprehensive undertaking, the process identifies the type and extent of facilities that are required to meet projections of aviation demand and evaluates a full range of alternatives for improving facilities consistent with forecast requirements. All functions at the Airport are considered, including the airfield, terminal and related passenger services, cargo, general aviation, airport support, and access (Sacramento County 2017).

Mather Airport
Mather Airport primarily accommodates the region’s all-cargo carriers. It is located 12 miles east of downtown Sacramento and has two runways. The longest runway is 11,301 feet long and 150 feet wide. Approximately 63 aircraft are based at the airport, including 45 single-engine, five multiengine, and six jet-engine airplanes, and seven helicopters. Mather Airport serves local general aviation, air taxi, transient general aviation, commercial, and military purposes. There is a 24-hour first response aircraft rescue and firefighting facility onsite (Sacramento County 2013).

Franklin Field
Franklin Field is a rural airport used primarily for pilot flight training and aviation-related agricultural applications. It is located approximately 20 miles south of downtown Sacramento, and outside of the Policy Area. Franklin Field is currently a public use airport owned and operated by Sacramento County. The airport has two intersecting runways, each approximately 3,000 feet long and 60 feet wide. The facility is considered an uncontrolled airport since it does not have an air traffic control tower or personnel. There are approximately 36,000 operations each year at Franklin Field, including flight training. The airport was acquired by the County of Sacramento in 1947 from the federal government under the Surplus Property Act of 1944 and was the former site of bomber training during World War II. The Elk Grove Fire Department is located approximately eight miles northeast of the Airport and provides fire and emergency response services to the site (City of Sacramento 2015).

Aircraft Crash Hazards
Sacramento International Airport poses the greatest risk for aircraft crash hazards within the Policy Area due to its 24-hour operation and large number of flights and passengers. Parts of the Policy Area fall within the airport’s designated flight paths, but only at high altitudes. Therefore, the risk of an aircraft crash incident in the region causing a hazard to large populations is reduced.

The City of Sacramento Fire Department has mutual aid agreements with other agencies that could provide assistance in the event of an aircraft accident. Sacramento International Airport, Mather Airport, and McClellan Airfield all have airport crash vehicles that could assist in the event of an accident in the Policy Area. The City’s Emergency Operations Plan contains strategies to help plan for disaster events, including a major transportation incident, such as an aircraft crash, within the city.

REGULATORY CONTEXT
Federal
Federal Aviation Administration Regulations
The Federal Aviation Administration (FAA) is the federal agency tasked with regulating civil aviation to promote safety, provide an air traffic control system for both military and civil aircraft, and respond to aircraft crash incidents. FAA regulations are mandated to ensure aircraft are suitable for flight to reduce the risk of crash hazards and that airports are sited and operated in a manner to pose the least possible risk to the public.

Federal Aviation Regulation Part 77
Federal Aviation Regulation (FAR) Part 77 establishes standards for determining obstructions in navigable airspace and requires that the Federal Aviation Administration Administrator receive notice of proposed construction or alteration at an airport. The standards established in FAR Part 77 apply to alteration of any permanent or temporary existing structure by a change in its height

TECHNICAL BACKGROUND REPORT

(including appurtenances), or lateral dimensions, including equipment or materials used for construction. Subsections 77.23, Standards for Determining Obstructions, and 77.25, Civil Airport Imaginary Surfaces, are applicable to the proposed project.

State
State Aeronautics Act
The California Department of Transportation (Caltrans) Division of Aeronautics performs many functions to promote aviation safety in California. The division relies upon the State Aeronautics Act, Public Utilities Code (PUC) sections 21001 et seq., to provide policies that promote safety in aeronautics. Functions of the division include the issuance of permits, regulations for airport inspection and design, planning to ensure consistency with federal regulations, and providing grants to airports to improve safety.

FAA regulations are administered at the state level by the Caltrans Division of Aeronautics. The California Department of Transportation's mission in aviation is to foster and promote the development of a safe, efficient, dependable, and environmentally compatible air transportation system. The Division issues permits for and annually inspects hospital heliports and public-use airports; makes recommendations regarding proposed school sites within two miles of an airport runway; and authorizes helicopter landing sites at/near schools. Aviation system planning provides for the integration of aviation into transportation system planning on a regional, statewide, and national basis. The Division of Aeronautics administers noise regulation and land use planning laws that foster compatible land use around airports and encourages environmental mitigation measures to lessen noise, air pollution, and other impacts caused by aviation. The Division of Aeronautics also provides grants and loans for safety, maintenance and capital improvement projects at airports.

Local
Airport Land Use Compatibility Plans
Public safety and the reduction of aviation hazards are concerns in the airport planning process.

The Sacramento Area Council of Governments (SACOG) serves as the Airport Land Use Commission for Sacramento County. The Airport Land Use Commission has two primary functions: (1) the protection of public health, safety, and welfare through the adoption of land use standards that minimize the public’s exposure to safety hazards and excessive noise from nearby airports; and (2) to prevent the intrusion of incompatible land uses around airports to preserve the utility of the County’s airports in the future. Comprehensive Land Use Plans (CLUPs) provide safety guidelines, including building restrictions and noise compatibility for areas near airports.

SACOG provides CLUPs for the following airports in the vicinity of the City: Franklin Field, Mather Airport, McClellan Air Force Base, Rio Linda Airport, Sacramento Executive Airport, Sacramento International Airport and Sunset Sky Ranch. (SACOG 2018)

7.5 Noise

INTRODUCTION
This section provides relevant acoustical background and the environmental noise conditions within the Policy Area by examining sources of noise attributed to freeways and highways, aircraft, railways, light rail and stationary sources. Data used in the preparation of this section are based upon field measurements, and modeling of existing noise levels from traffic data in the Policy Area.

Fundamentals of Sound, Noise, and Vibration
Sound Properties
Sound can be described in terms of amplitude (loudness) and frequency (pitch). The standard unit of sound amplitude measurement is the decibel (dB). The decibel scale is a logarithmic scale that describes the intensity of the pressure vibrations that make up a sound. The pitch of the sound is correlated to the frequency of the sound’s pressure vibration. Because humans are not equally sensitive to a given sound level at all frequencies, a special scale has been devised to relate noise to human sensitivity. The A-weighted decibel scale (dBA) does this by placing more importance on frequencies that are more noticeable to the human ear.

Sound is a mechanical form of radiant energy, transmitted by a pressure wave through a solid, liquid, or gaseous medium. Noise is typically defined as unwanted sound. A typical noise environment consists of a base of steady “background” noise that is made up of many distant and indistinguishable noise sources. Superimposed on this background noise is the sound from individual local sources. These can vary from an occasional aircraft or train passing by to virtually continuous noise from, for example, traffic on a major highway. Table 7-2 lists representative noise levels for typical sources of environmental noise.

Effects of Noise on Humans
Excessive and chronic exposure to elevated noise levels can result in auditory and non-auditory impactsto humans. Auditory effects of noise on people are those related to temporary or permanent hearing loss caused by loud noises. Non-auditory effects of exposure to elevated noise levels are those related to behavioral and physiological effects. The non-auditory behavioral effects of noise on humans are associated primarily with the subjective effects of annoyance, nuisance, and dissatisfaction, which lead to interference with activities such as communications, sleep, and learning. The non-auditory physiological health effects of noise on humans have been the subject of considerable research attempting to discover correlations between exposure to elevated noise levels and health problems, such as hypertension and cardiovascular disease. The mass of research infers that noise-related health issues are predominantly the result of behavioral stressors and not a direct noise-induced response. The extent to which noise contributes to non-auditory health effects remains a subject of considerable research, with no definitive conclusions.

TECHNICAL BACKGROUND REPORT

Table 7-2: Representative Environmental Noise Levels
Common Outdoor Activities Noise Level (dBA) Common Indoor Activities NA 110 Rock Band
Jet fly-over at 100 feet 100 NA
Gas lawnmower at 3 feet 90 NA
Diesel truck going 50 mph
at 50 feet
80 Food blender at 3 feet, garbage disposal at 3
feet
Noisy urban area during
daytime, gas lawnmower at
100 feet
70 Vacuum cleaner at 10 feet, normal speech at 3
feet
Commercial area, heavy
traffic at 300 feet
60 Dishwasher, clothes dryer
Quiet urban area during
daytime
50 Large business office, dishwasher in next
room
Quiet urban area during
nighttime
40 Theater, large conference room (background)
Quiet suburban area during
nighttime
30 Library, bedroom at night, concert Hall
(background)
Quiet rural area during
nighttime
20 Broadcast/recording studio
Lowest threshold of human
hearing
0 Lowest threshold of human hearing
Source: California Department of Transportation, 2009.

The degree to which noise results in annoyance and interference is highly subjective and may be influenced by several non-acoustic factors. The number and effect of these non-acoustic factors vary depending on individual characteristics of the noise environment such as sensitivity, level of activity, location, time of day, and length of exposure. One key aspect in the prediction of human response to new noise environments is the individual level of adaptation to an existing noise environment. The greater the change in the noise levels that are attributed to a new noise source, relative to the environment an individual has become accustom to, the less tolerable the new noise source will be perceived.

With respect to how humans perceive and react to changes in noise levels, a 1 dB increase is imperceptible, a 3 dB increase is barely perceptible, a 6 dB increase is clearly noticeable, and a 10 dB increase is subjectively perceived as approximately twice as loud (Egan 2007). These subjective reactions to changes in noise levels was developed on the basis of test subjects’ reactions to changes in the levels of steady-state pure tones or broad-band noise and to changes in levels of a given noise source. It is probably most applicable to noise levels in the range of 50 to 70 dB, as this is the usual range of voice and interior noise levels. For these reasons, a noise level increase of 3 dB or more is typically considered substantial in terms of the degradation of the existing noise environment.

Vibration
Vibration is the periodic oscillation of a medium or object with respect to a given reference point.

Sources of vibration include natural phenomena (e.g., earthquakes, volcanic eruptions, sea waves, landslides) and those introduced by human activity (e.g., explosions, machinery, traffic, trains, construction equipment). Vibration sources may be continuous, (e.g., operating factory machinery) or transient in nature (e.g., explosions). Vibration levels can be depicted in terms of amplitude and frequency (relative to displacement), velocity, or acceleration.

Vibration amplitudes are commonly expressed in PPV or root-mean-square (RMS) vibration velocity. PPV and RMS vibration velocity are normally described in inches per second (in/sec).

Although PPV is appropriate for evaluating the potential for building damage, it is not always suitable for evaluating human response. It takes some time for the human body to respond to vibration signals. In a sense, the human body responds to average vibration amplitude. The RMS of a signal is the average of the squared amplitude of the signal, typically calculated over a 1-second period. As with airborne sound, the RMS velocity is often expressed in decibel notation as vibration decibels (VdB), which serves to compress the range of numbers required to describe vibration (FTA 2006). This is based on a reference value of 1 micro (μ) in/sec.

The typical background vibration-velocity level in residential areas is approximately 50 VdB.

Groundborne vibration is normally perceptible to humans at approximately 65 VdB. For most people, a vibration-velocity level of 75 VdB is the approximate dividing line between barely perceptible and distinctly perceptible levels (FTA 2006).

Typical outdoor sources of perceptible ground vibration are construction equipment, steel-wheeled trains, and traffic on rough roads. If a roadway is smooth, the ground vibration is rarely perceptible.

The range of interest is from approximately 50 VdB, which is the typical background vibrationvelocity level, to 100 VdB, which is the general threshold where minor damage can occur in fragile buildings. Construction activities can generate ground vibrations, which can pose a risk to nearby structures. Constant or transient vibrations can weaken structures, crack facades, and disturb occupants.

Construction vibrations can be transient, random, or continuous. Transient construction vibrations are generated by events such as blasting, impact pile driving, and wrecking balls.

Continuous vibrations result from activities such as vibratory pile drivers, large pumps, and compressors. Random vibration can result from jackhammers, pavement breakers, and heavy construction equipment. Table 7-3 describes the general human response to different levels of ground vibration-velocity levels.

EXISTING CONDITIONS
Sensitive Receptors
Sensitive noise receptors typically include residences, schools, child care centers, hospitals, longterm health care facilities, convalescent centers, and retirement homes. Each of these land use types currently occur within the Policy Area.

TECHNICAL BACKGROUND REPORT

Table 7-3: Human Response to Ground Noise and Vibration Vibration-Velocity Level Human Reaction
65 VdB Approximate threshold of perception.
75 VdB
Approximate dividing line between barely perceptible and distinctly perceptible. Many people find that transportation-related vibration at this level is unacceptable.
85 VdB Vibration acceptable only if there are an infrequent number of events per day.

Notes: VdB = vibration decibels referenced to 1 μ inch/second and based on the RMS velocity amplitude Source: FTA 2006.

Sources of Noise
Land uses within the Policy Area include a range of residential, commercial, institutional, industrial, recreational, and open space areas. Although there are many noise sources within the Policy Area, the primary noise source is vehicular traffic. Significant noise also occurs from airplane traffic, railroads, and various stationary sources as described below.

Freeways and Highways in the Policy Area
Motor vehicle noise commonly causes sustained noise levels in the vicinity of busy roadways or freeways. Several major freeways traverse the Policy Area. These include Interstate 5, Interstate 80, U.S. Highway 50, State Route 99, and State Route 160. The Policy Area also has many local roads that experience very high traffic volumes and contribute traffic noise. Most noise receptors, such as residences, built near these high-traffic corridors have some level of noise attenuation such as a sound wall or barrier. These receptors also have built-in interior noise attenuation that is the result of the building construction and insulation.

Noise levels affecting proposed new residences are reviewed on a project-by-project basis during the environmental review process. Residential projects that are proposed near major noise sources within the Policy Area are evaluated to determine whether they will be exposed to noise levels that will exceed applicable noise standards.

Aircraft Noise
The Policy Area is served by four airports, the Sacramento International Airport, Executive Airport, McClellan Airfield, and Mather Airport. The County owns and operates the airports as part of the Sacramento County Airport System. Of these airports, Sacramento International provides almost all commercial passenger flights. McClellan Airfield, formerly McClellan Air Force Base, features a 10,600 foot lighted runway approved for day/night use, includes a full-service fixed-base operator, and is shared by the U.S. Coast Guard. Mather Airport is used primarily for air shipping purposes, but also includes fixed-base operators and CalFIRE aircraft. Executive Airport is a public-use airport that serves mostly smaller, private planes. Noise contours for Sacramento area airports are shown in Figure 7-4.

Sunset
Skyranch
Mather
Airport
Rio Linda
Airport
Sacramento
Executive
Airport
Sacramento
International
Airport
Sacramento
Mcclellan
Airport
Sacramento City Limit
Sphere of Influence
Policy Area
Water
Light Rail
Station
Blue Line
Blue/Gold Line
Gold Line
Green Line
Proposed Green Line Extension
Community Noise Equivalent Level
0 60
65 70
75 80
Source: City of Sacramento Commmunity Development Department, 2018; County of Sacramento, 2020 Z:\Projects\j1149901\MAPDOC\TBR\Section 7 Env Hazards\Figure7-4_AirportNoiseContours.mxd 0 0.5 1 2 Mile
Figure 7-4
Airport Noise Contours

TECHNICAL BACKGROUND REPORT

Railway Noise
Rail lines cross through the Policy Area in a number of locations. Union Pacific trains traverse three routes. Due to security concerns the Federal Rail Authority does not disclose the number of freight trains that pass through the city on a daily basis.
• Generally north/south past California State University at Sacramento. • Generally north/south through downtown Sacramento.
• Generally east/west through West Sacramento to the Union Pacific depot.

Aside from freight trains, Amtrak passenger trains also arrive and depart from the Amtrak station located at 3rd and I streets in downtown Sacramento. The Capitol Corridor service operated by Amtrak is an intercity passenger train system connecting Placer, Sacramento, and Yolo counties to stations in the San Francisco Bay Area. It operates 30 trains daily on weekdays and 22 on weekends carrying about 142,000 riders per month on average between Auburn and San Jose. It is the fourth busiest Amtrak-operated route in the nation. Amtrak’s San Joaquin Route provides intercity rail service between the Bay Area and Sacramento and Bakersfield, with bus connections to Los Angeles, Redding, Yosemite National Park and Las Vegas, Nevada. The Sacramento-to-Bakersfield segment has two daily round trips. Four daily round trips between Oakland/San Francisco and Bakersfield are also accessible by Sacramento and Elk Grove riders through Amtrak connecting buses. Additionally, the Coast Starlight and California Zephyr trains go through the region stopping in Davis, Sacramento, Roseville and Colfax on their way from Seattle to Los Angeles and from Chicago to San Francisco, respectively (SACOG 2015). In addition to the noise generated by the trains themselves, noise is generated where trains intersect roadways by the warning bells used to alert motorists of a train’s arrival. Railroad noise contour distances for the areas described above are provided in Appendix C.

Light Rail
Light rail transit, which is a major component of the City’s transit system, also runs through the City of Sacramento along three routes: the Blue Line, the Green Line, and the Gold Line. The Blue Line runs from the Interstate 80/Watt Avenue interchange to the Meadowview area. The Green Line runs from Richards Boulevard through downtown to R Street. The Gold Line runs from Folsom to the Sacramento Valley Station in downtown Sacramento. Light rail service operates daily, beginning on weekdays at 4:00 AM, with service at 15-minute intervals throughout the day and every 30 minutes in the evening. On weekdays, trains operate until 1:00 AM on the Blue Line, until 12:00 AM on the Gold Line between Sacramento Valley Station and Sunrise Station, and until 7:00 PM from Sunrise Station to the terminus at Historic Folsom. Noise generated from light rail is characterized by the noise modeling conducted, shown in Table 7-4 and in Figure 7-5.

Watt/I-80
Watt/I-80West
Roseville Road
Marconi/Arcade
Royal
Oaks
Arden/Del Paso
Globe Avenue
16th Street
23rd
Street 29th
Street
39th
Street
48th
Street 59th
Street
University/
65th Street
Power Inn
College
Greens
Watt/Manlove
Starfire Broadway (& 19th)
4th Ave./
Wayne Hultgren
City College
Fruitridge
47th Avenue
Florin
Meadowview
Swanston
Airport
Station
Club Center Dr/
N.Village Center
North Natomas
Town Center
East Town Center
Arco Arena
Arena
Blvd.

Gateway Park/
Market Place
San Juan Rd.

PebblestoneWay
W. El Camino Ave.

Richards
Blvd.

Franklin
Blvd.

Cosumnes River
Center Parkway
Morrison Creek
Railyards
Twin
Rivers
LT-5
ST-5
ST-4
LT-4
LT-3
ST-3
LT-2
ST-2
ST-1
LT-1
Noise Monitoring Location
Sacramento City Limit
Sphere of Influence
Policy Area
Water
Light Rail
Station
Blue Line
Blue/Gold Line
Gold Line
Green Line
Proposed Green Line Extension
Source: City of Sacramento Commmunity Development Department, 2018 Z:\Projects\j1149901\MAPDOC\TBR\Section 7 Env Hazards\Figure7-5_NoiseLocations.mxd 0 0.5 1 2 Mile
Figure 7-5
Noise Monitoring Locations

TECHNICAL BACKGROUND REPORT

Stationary Sources
A wide variety of stationary noise sources are present in the Policy Area. The Policy Area contains many different land uses, all of which can produce noise. Residential areas are subject to noise through the use of heating and cooling equipment, and through landscape maintenance activities such as leaf-blowing and gasoline-powered lawnmowers. Commercial uses can also generate noise through the operation of rooftop heating and cooling equipment, truck deliveries, and other operational activities. Daily activity of certain industrial uses can generate noise as well, especially those that use heavy equipment as part of normal operations such as shipping and loading, concrete crushing, and recycling. Outdoor sporting event facilities that can attract large numbers of spectator, such as high school or college football fields, can also produce noise. The amount of noise produced depends on the size of the facility and the turnout for a specific event.

Noise monitoring results indicate that sources that would seem intuitively to generate high noise levels may not generate much noticeable noise at all. Large manufacturing facilities or utility plants often have noise producing equipment enclosed in the interior of buildings, or are located on large sites where the equipment is set far back from potential receptors. In either case, noise from actual processes ongoing at the facility may be very low or not noticeable at all beyond the facility’s property line.

Existing Noise Levels
Monitored Daytime Noise Levels
To document existing ambient daytime noise levels, ten different locations were selected to determine representative noise levels for certain sources in various portions of the Policy Area.

Noise measurements were performed using Larson Davis Laboratories (LDL) Model 831 precision integrating sound level meters (SLMs). Field calibrations were performed on the SLM with an acoustic calibrator before and after the measurements. Equipment meets all pertinent specifications of ANSI S1.4-1983 (R2006) for Type 1 SLMs. Noise measurements were performed in accordance with American National Standards Institute (ANSI) and American Standards for Testing and Measurement (ASTM) guidelines.

Long-term and short-term measured noise levels for each location are identified in Tables 7-4 and 7-5 and shown in Figure 7-5. During the long-term monitoring, the primary background noise source affecting the monitoring locations was vehicular traffic on the local roadway network.

Additional noise sources experienced during the long-term noise monitoring period included lightrail transit operations, aircraft over-lights and general community noise. Ambient noise level exposure at the monitoring locations were dependent on the relative exposure to nearby transportation noise sources.

Long-term noise monitoring data collected during the noise monitoring program serves to establish a baseline for ambient noise levels in the Policy Area and to provide insight into existing noise levels for future development in the areas surrounding the monitoring locations.

Roadway Noise Levels
Existing 24-hour noise levels have been calculated for various freeways, highways, and road segments throughout the Policy Area. Noise levels were modeled for the roadways with the highest traffic volumes within the Policy Area.

Table 7-4: Summary of Long-Term Noise Monitoring Locations Site
No. Description Date Ldn
Noise Level Exposure, dBA
Average (Maximum)
Daytime (7AM – 10PM) Nighttime (10PM – 7 AM)
Leq Lmax L50 L90 Leq Lmax L50 L90
1 Cosumnes
River
College
7/16/19
-
7/17/19

68.0 64.3
(68.2)

83.3 (95.3)

60.7 (63.4)

53.2 (54.2)

61.0 (64.8)

78.6 (92.3)

53.4 (62.5)

45.6 (52.8)
2 Sacramento
City
CollegeCrocker
Village
7/16/19
-
7/17/19 56.4 50.6
(58.8)

66.0 (79.1)

43.4 (48.3)

41.8 (47.3)

49.9 (54.8)

62.9 (78.8)

44.2 (48.5)

42.1 (45.9)
3 University &
65th
7/16/19
-
7/17/19

69.9 64.7
(67.7)

75.0 (90.5)

63.5 (67.5)

61.1 (66.0)

63.2 (67.2)

70.2 (75.1)

61.7 (67.1)

58.8 (65.3)
4 Power Inn
Station
7/17/19
-
7/18/19

57.0 52.1
(54.5)

66.7 (77.5)

49.9 (53.8)

47.4 (52.0)

50.3 (54.2)

62.1 (70.4)

47.5 (53.4)

44.8 (51.4)
5 Greenline
Extension
7/17/19
-
7/18/19

62.7 58.5
(60.4)

71.4 (78.3)

56.0 (58.2)

52.1 (54.7)

55.7 (59.8)

68.2 (74.3)

52.7 (58.4)

50.3 (55.9)
Notes:

1. Descriptions of noise measurement locations and descriptions are provided in Appendix D.

2. Measurements were conducted on July 16, 17, and 18, 2019.

3. All readings were taken on days with clear atmospheric conditions and little to no wind.

Source: Dudek, 2019.

Traffic noise modeling was consistent with FHWA and Caltrans Traffic Noise Model (FHWA 2006 and Caltrans 2009) and used traffic volume data developed for the transportation analysis (F&P 2013). The modeling is based on the reference noise emission levels for automobiles, medium trucks, and heavy trucks, with consideration given to vehicle volume, speed, roadway configuration, distance to the receiver, and ground attenuation factors. Truck usage and vehicle speeds on study area roadways were provided by the project-specific traffic report (F&P 2013). The modeling conducted does not account for any natural or human-made shielding (e.g., the presence of vegetation, berms, walls, or buildings) and, consequently, represents worst-case noise levels.

The calculated noise levels at 50 feet are presented in Appendix E along with the distances to various noise level contours. Freeways and major surface streets were the greatest sources of traffic noise.

TECHNICAL BACKGROUND REPORT

Table 7-5: Short-Term Noise Monitoring Locations
Site
No. Description Time
Average Noise Level, dBA
Leq Lmax L1.67 L8 L25 L50 L90 L99
1 Florin Station 12:20 PM 64.0 81.9 75.4 66.5 53.7 48.2 43.3 38.9 2 Fruitridge Station 1:28 PM 46.7 58.9 54.5 49.8 46.0 44.3 43.0 42.3 3 Fruitridge & 65th
Expy 2:08 PM 67.5 84.6 75.2 71.9 67.0 61.1 54.7 50.6
4 Watt & Manlove
Station 3:00 PM 57.0 70.7 63.8 60.3 57.6 55.3 50.9 48.6 5 Swanson Station 3:54 PM 57.8 76.0 68.8 58.9 52.2 49.4 47.3 45.9 Notes:

1. Descriptions of noise measurement locations and descriptions are provided in Appendix D.

2. Measurements were conducted on July 25, 2019.

3. All readings were taken on days with clear atmospheric conditions and little to no wind.

Source: Dudek, 2019.

REGULATORY SETTING
Federal
The Federal Noise Control Act of 1972
The basic motivating legislation for noise control in the U.S. was provided by the Federal Noise Control Act (1972), which addressed the issue of noise as a threat to human health and welfare, particularly in urban areas. In response to the Noise Control Act, the Environmental Protection Agency (EPA) published Information on Levels of Environmental Noise Requisite to Protect Public Health and Welfare with an Adequate Margin of Safety (EPA 1974). In summary, EPA findings were that sleep, speech, and other types of essential activity interference could be avoided in residential areas if the Ldn did not exceed 55 dBA outdoors and 45 dBA indoors. The EPA’s intent was not that these findings necessarily be considered as mandatory standards, criteria, or regulatory goals, but as advisory exposure levels below which there is no reason to suspect that the general population would be at risk from any of the identified health or welfare effects of noise. The EPA Levels report also identified 5 dBA as an adequate margin of safety before an increase in noise level would produce a significant increase in the severity of community reaction (i.e., increased complaint frequency, annoyance percentages, etc.) provided that the existing baseline noise exposure did not exceed 55 dBA Ldn.

U.S. Department of Transportation
To address the human response to ground vibration, the Federal Transit Administration (FTA) of the U.S. Department of Transportation (DOT) has set forth guidelines for maximum-acceptable vibration criteria for different types of land uses. These guidelines are presented in Table 7-6:

Table 7-6: Ground-Borne Vibration (GBV) Impact Criteria for General Assessment
Land Use Category GVB Impact Levels (VdB re 1 micro-inch/second) Frequent
Events1
Occasional
Events2
Infrequent
Events3
Category 1: Buildings where vibration would interfere
with interior operations. 654 654 654
Category 2: Residences and buildings where people
normally sleep. 72 75 80
Category 3: Institutional land uses with primarily
daytime uses. 75 78 83
Notes:

1. “Frequent Events” is defined as more than 70 vibration events of the same source per day.

2. “Occasional Events” is defined as between 30 and 70 vibration events of the same source per day.

3. “Infrequent Events” is defined as fewer than 30 vibration events of the same source per day.

4. This criterion limit is based on levels that are acceptable for most moderately sensitive equipment such as optical microscopes. Vibration-sensitive manufacturing or research will require detailed evaluation to define the acceptable vibration levels.

Source: Federal Transit Administration, Transit Noise Impact and Vibration Assessment, May 2006.

State
The State of California General Plan Guidelines 2013 (Guidelines) promotes use of Ldn or CNEL for evaluating noise compatibility of various land uses with the expected degree of noise exposure.

The designation of a level of noise exposure as “normally acceptable” for a given land use category implies that the expected interior noise would be acceptable to the occupants without the need for any special structural acoustic treatment. The Guidelines identify the suitability of various types of building construction relative the range of customary outdoor noise exposures. The Guidelines provide each local community some leeway in setting local noise standards that allow for the variability in individual perceptions of noise in that community. Findings presented in EPA Levels have had an obvious influence on the content of the State Guidelines, most importantly in the latter’s choice of noise exposure metrics and in the upper limits for the “normally acceptable” exposure of noise-sensitive uses (i.e., no higher than 60 dBA Ldn or CNEL for low-density residential, which is just at the upper limit of the 5 dBA “margin of safety” defined by the EPA for noise-sensitive land use categories).

TECHNICAL BACKGROUND REPORT

Caltrans
In 2004, the California Department of Transportation (Caltrans) published the Transportation-and Construction-Induced Vibration Manual, which provides general guidance on vibration issues associated with construction and operation of projects in relation to human perception and structural damage.

Table 7-7 presents recommended levels of vibration that could result in damage to structures exposed to continuous vibration.

Table 7-7: Caltrans Recommended Vibration Levels
PPV (in/ec) Effect on Buildings

0.4-0.6 Architectural damage and possible minor structural damage

0.2 Risk of architectural damage to normal dwelling houses

0.1 Virtually no risk of architectural damage to normal buildings

0.08 Recommended upper limit of vibration to which ruins and ancient monuments should be subjected

0.006-0.019 Vibration unlikely to cause damage of any type Source: Caltrans 2004.

Local
City of Sacramento Municipal Code
Chapter 8.68 of the City of Sacramento City Code contains applicable noise regulations within the city limits, as listed below:

Section 8.68.060 – Exterior Noise Standards:
a) The noise standards that apply to all agricultural and residential properties are:

1. From seven a.m. to ten p.m. the exterior noise standard shall be fifty-five (55) dBA.

2. From ten p.m. to seven a.m. the exterior noise standard shall be fifty (50) dBA. b) It is unlawful for any person at any location to create any noise which causes the noise levels when measured on agricultural or residential property to exceed for the duration of time set forth following, the specified exterior noise standards in any one hour by (shown in Table 7-8):
c) Each of the noise limits specified in subsection B of this section shall be reduced by five dBA for impulsive or simple tone noises, or for noises consisting of speech or music.

Table 7-8: City of Sacramento Specified Exterior Noise Standards Cumulative Duration of the Intrusive Sound Allowance Decibels Cumulative period of 30 minutes per hour 0
Cumulative period of 15 minutes per hour +5
Cumulative period of 5 minutes per hour +10
Cumulative period of 1 minute per hour +15
Level not to be exceeded for any time per hour +20
Source: Sacramento City Code, 2012.
d) If the ambient noise level exceeds that permitted by any of the first four noise categories specified in subsection B of this section, the allowable noise limit shall be increased in five dBA increments in each category to encompass the ambient noise level. If the ambient noise level exceeds the fifth noise level category, the maximum ambient noise level shall be the noise limit for that category.

Section 8.68.070 - Interior Noise Standards:
a) In any apartment, condominium, townhouse, duplex or multiple dwelling unit it is unlawful for any person to create any noise from inside his or her unit that causes the noise level when measured in a neighboring unit during the periods ten p.m. to seven a.m. to exceed:

1. Forty-five (45) dBA for a cumulative period of more than five minutes in any hour;

2. Fifty (50) dBA for a cumulative period of more than one minute in any hour;

3. Fifty-five (55) dBA for any period of time.
b) If the ambient noise level exceeds that permitted by any of the noise level categories specified in subsection A of this section, the allowable noise limit shall be increased in five dBA increments in each category to encompass the ambient noise level.

TECHNICAL BACKGROUND REPORT

7.6 Hazardous Materials

INTRODUCTION
This section is based on information derived from the City of Sacramento 2018 Emergency Operations Plan, County of Sacramento 2017 Local Hazard Mitigation Plan, applicable Airport Land Use Compatibility Plans, and information from federal, state, and local agency databases. For further information on response to a hazardous materials release, see Section 7.6 Emergency Response. For more information on air quality see Chapter 6, Environmental Resources, Section

6.6, Air Quality.

EXISTING CONDITIONS
Hazardous Materials Use
Hazardous materials are routinely used, stored, and transported in the Policy Area by businesses (including industrial and commercial/retail businesses), public and private institutions (such as educational facilities and hospitals), and households. The Sacramento County Environmental Management Department (SCEMD) maintains a database of all businesses in the City of Sacramento using hazardous materials in excess of the threshold quantities (55 gallons for a liquid, 200 cubic feet for a compressed gas, and 500 pounds for a solid) (SCEMD 2019). The “Master List of Facilities within Sacramento County with Potentially Hazardous Materials” is downloadable from the County’s website: http://www.emd.saccounty.net/EC/CUPA/Pages/EMDForms-CUPAForms.aspx and is available to the public (Sacramento County 2018). Businesses in the Policy Area that use and store hazardous materials in quantities subject to federal and state regulations that require community notification are required to prepare and submit a Hazardous Materials Management Plan (or “Business Plan”) and/or Risk Management Plans (RMPs), as appropriate, to the SCEMD.

Hazardous Waste Generation
The Environmental Compliance Division of the Sacramento County Environmental Department has published Guidelines for Generators of Hazardous Waste (Sacramento County EMD 2013), which summarizes the various requirements for generating, storing, handling, transporting, and disposing of hazardous wastes. In addition to major hazardous waste generators, it should also be noted that hazardous materials (household hazardous materials) such as cleaning products, paints, solvents, motor oil, and gasoline, are used in small quantities by households and businesses every day. The City of Sacramento operates programs to collect and properly dispose of household hazardous waste including curbside pickup for residences.

Treatment, Storage, and Disposal Facilities
Safety-Kleen Systems, Inc. operates the Sacramento Accumulation Center in the southeastern portion of the Policy Area (6000 88th Street) that handles a variety of hazardous wastes. The facility is permitted by the California Department of Toxic Substances Control (DTSC) to store and

transfer hazardous wastes from outside generators, such as automotive repair and maintenance shops, to the Safety-Kleen Reedley Recycling Center for recycling, or to a permitted facility for disposal or treatment (DTSC 2006).

Sites with Known Contamination
The Policy Area contains sites that were historically contaminated but have been remediated and sites that are known, or believed to be, contaminated that are currently being characterized or cleaned-up. Contamination has resulted from lack of awareness, accidental occurrences, intentional actions, and historical business practices that pre-date current regulatory standards, Federal and state agencies responsible for hazardous materials management, along with the County of Sacramento, maintain databases of such sites. Below is a brief description of five of the databases that provide information about hazardous materials sites within the Policy Area. Appendix F contains information from these databases.

Comprehensive Environmental Response, Compensation and Liability Information System The Comprehensive Environmental Response, Compensation and Liability Act of 1980 (CERCLA), is a regulatory or statute law developed to protect the water, air, and land resources from the risks created by past chemical disposal practices. Under CERCLA, the US EPA maintains the Comprehensive Environmental Response, Compensation, and Liability Information System (CERCLIS). CERCLIS contains information on hazardous waste sites, potential hazardous waste sites, and remedial activities, including sites that are on the National Priorities List (NPL) or being considered for the NPL (“Superfund”).

The CERCLIS database lists 13 sites in the Policy Area. Only one of these sites, the Sacramento Army Depot (8350 Fruitridge Road), is on the NPL. Contaminants on this site include metals, polychlorinated biphenyls, petroleum hydrocarbons, and volatile organic compounds.

Remediation activities at the Sacramento Army Depot are ongoing, but the threats of human exposure and groundwater contaminant migration are believed under control (US EPA 2018).

California Department of Toxic Substances Control Envirostor Database The California Department of Toxic Substances Control (DTSC) maintains the Envirostor electronic database, which contains information on properties in California where hazardous substances have been, or have potential to be, released. This database is one of a number of lists that comprise the “Cortese List” (a list of hazardous materials sites compiled pursuant to Government Code Section 65962.5). EnviroStor provides a brief history of cleanup activities, contaminants of concern, and scheduled future cleanup activities.

A review of the EnviroStor database in January 2019, identified approximately 327 sites in the Policy Area, 24 of which are currently listed as active and 55 of which are listed as inactive and in need of evaluation. The remaining sites have been referred to another agency, require no further action, or have been fully remediated. The majority of the active sites are located in the Central Business

TECHNICAL BACKGROUND REPORT

District. Figure 7-6 identifies the various EPA-regulated sites throughout the Policy Area. See Section 8.6 Public Health and Safety for more information on the Central Business District Tier 1 Priority Area.

Regional Water Quality Control Board Spills, Leaks, Investigations and Cleanup The Spills, Leaks, Investigation and Cleanup (SLIC) Program was established by the State Water Resources Control Board so that Regional Water Quality Boards (RWQCBs) could oversee cleanup of illegal discharges, contaminated properties, and other unregulated releases adversely impacting the state's waters but not covered by another program. As of January 2019, there were 16 sites in the Policy Area that are currently being investigated, monitored, and/or remediated under the oversight of the RWQCB. The sites are industrial facilities including warehouse distribution centers, food processing and packaging plants, truck terminals, and commercial and vacant sites.

Some of the sites are also included on lists developed by DTSC and Sacramento County.

Leaking Underground Storage Tanks
Extensive federal and state legislation addresses leaking underground storage tanks (LUSTs), including replacement and cleanup. The State of California requires that older tanks be replaced with new double-walled tanks with flexible connections and monitoring systems. The State Water Resources Control Board has been designated the lead regulatory agency in the development of LUST regulations and policy. The RWQCB, in cooperation with the California Office of Emergency Services (Cal OES, maintains an inventory of LUSTs in a statewide database.

There are hundreds of LUST sites located throughout the city and the Policy Area that are under active evaluation and/or remediation under the oversight of the RWQCB and SCEMD. Most of the sites are gasoline stations, but some are industrial or commercial facilities with underground fuel tanks that have leaked hydrocarbons. Some of the sites listed by the RWQCB are also included on the RWQCB Spills, Leaks, Investigation and Cleanup Program list, and most are also on Sacramento County’s Toxic Sites list (see below).

County of Sacramento Toxic Sites
Sacramento County maintains county-wide master lists of facilities with potentially hazardous materials and sites where unauthorized releases of potentially hazardous materials have occurred.

The November 2018 lists include over 10,500 facilities that use hazardous materials and more than 1,500 unauthorized releases.

In general, contaminated commercial uses are primarily auto-related, including gas stations, repair shops, car washes, service stations, and car sales lots. Industrial uses generally consist of building materials, distribution and warehouses, food processing and packing facilities, fabrication, processing, and construction facilities.

Watt/I-80
Watt/I-80 West
Roseville Road
Marconi/Arcade
Royal
Oaks
Arden/Del Paso
Globe Avenue
16th Street
23rd
Street 29th
Street
39th
Street
48th
Street 59th
Street
University/
65th Street
Power Inn
College
Greens
Watt/Manlove
Starfire
Tiber
Butterfield
Broadway (& 19th)
4th Ave./
Wayne Hultgren
City College
Fruitridge
47th Avenue
Florin
Meadowview
Swanston
Airport
Station
Club Center Dr/
N. Village Center
North Natomas
Town Center
East Town Center
Arco Arena
Arena
Blvd.

Gateway Park/
Market Place
San Juan Rd.

Pebblestone Way
W. El Camino Ave.

Richards
Blvd.

Franklin
Blvd.

Cosumnes River
Center Parkway
Morrison Creek
Railyards
Twin
Rivers
Facilities Regulated by the EPA
Sacramento City Limit
Sphere of Influence
Policy Area
Water
Light Rail
Station
Blue Line
Blue/Gold Line
Gold Line
Green Line
Proposed Green Line Extension
Source: City of Sacramento Commmunity Development Department, 2018; US EPA 2020 Z:\Projects\j1149901\MAPDOC\TBR\Section 7 Env Hazards\Figure7-6_EPASites.mxd 0 0.5 1 2 Mile
Alkali Flat/
La Valentina
12th & I
Cathedral
Square
St. Rose of
Lima Park
- 9th & K St. Rose of Lima Park
- 7th & K
7th & Capitol
8th & Capitol
Archives Plaza
(Eastbound)
Archives Plaza
(Northbound) 8th & O
(Eastbound)
8th & O
(Northbound)
13th Street
16th Street
Sacramento
Valley
7th & I St/
County Center
8th & K St
Cathedral
Square
8th & H St/
County Center
J ST
3RD ST
10TH ST
9TH ST
5TH ST
N ST
L ST
Figure 7-6
EPA-Regulated Sites

TECHNICAL BACKGROUND REPORT

Emergency Response
As a developed urban area, the City of Sacramento faces the potential for hazardous material emergencies. When a hazardous material emergency occurs, multiple resources are available, with the city’s Fire Department leading the response activities. The Policy Area also contains major transportation arteries, such as State Route 99 and U.S. Highway 50; Interstates 5, 80, and Capital City Freeway (Business 80), State Routes 16 and 160, and railroads; each transporting hundreds of thousands of tons of hazardous materials through and into the City each year. It is highly exposed to the effects of a major catastrophic hazardous material emergency due to the proximity of the transportation routes to densely populated areas. Additionally, the City must be concerned with the Port of Sacramento, even though it is located in Yolo County. Considerations must also be made for the numerous agriculturally-related business located within the response/mutual aid area.

The Special Operations Division of the City of Sacramento Fire Department operates a Hazardous Materials Program in partnership with the Sacramento Metropolitan Fire District and Sacramento County. In addition to responding to incidents within the city limits, the program provides 24-hour response for the County of Sacramento and the cities of West Sacramento, Elk Grove, Citrus Heights, Rancho Cordova, Folsom, and Galt, and Isleton. The program also responds to mutual aid requests from OES.

Three Type 1 Hazardous Materials Response (HazMat) Teams and two decontamination (Decon) teams are staffed by specially-trained firefighters that serve are also part of first-responding fire companies. The teams, each staffed with four specialists, are located in the following stations:
• Sacramento City Fire (HM-7)
• Sacramento City fire (HM-30)
• Sac Metro Fire (HM-109)
Further details regarding emergency response in the Policy Area are discussed in Section 7.6 Emergency Response.

REGULATORY CONTEXT
An overview of key laws and regulations related to hazardous materials that have been established by federal, state, and local entities is provided below.

Federal
Code of Federal Regulations
The US EPA laws governing the use, storage, and disposal of hazardous substances at the proposed project include the following:
• Resources Conservation and Recovery Act (RCRA): hazardous waste management;

• Hazardous and Solid Waste Amendments Act :hazardous waste management; • CERCLA: cleanup of contamination;
• Superfund Amendments and Reauthorization Act: cleanup of contamination; • Emergency Planning and Community Right-to-Know: business inventories and emergency response planning;
• Toxic Substances Control Act: tracking and screening industrial chemicals; and • Federal Insecticide, Fungicide, and Rodenticide Act: pesticide distribution, sale, and use.

Specific requirements for implementation of these statutes are codified in Title 40 of the CFR.

The EPA has authorized the DTSC to enforce hazardous waste laws and regulations in California.

Under RCRA, DTSC has the authority to implement permitting, inspection, compliance, and corrective action programs to ensure that people who manage hazardous waste follow state and federal requirements. Requirements place “cradle-to-grave” responsibility for hazardous waste disposal on the shoulders of hazardous waste generators. Generators must ensure that their wastes are disposed of properly, and legal requirements dictate the disposal requirements for many waste streams (e.g., banning many types of hazardous wastes from landfills).

Title 29, Part 1910 of the CFR describes the Hazard Communication Standard, which requires that workers be informed of the hazards associated with the materials they handle. Training in chemical work practices must include methods in the safe handling of hazardous substances, use of emergency response equipment, and an explanation of the building emergency response plan and procedures. Material safety data sheets must be available in the workplace, and containers must be appropriately labeled.

The United States Department of Transportation (US DOT) has developed regulations in Titles 10 and 49 of the CFR pertaining to the transport of hazardous substances and hazardous wastes by all modes of transportation. The U.S. Postal Service has developed additional regulations for the transport of hazardous substances by mail. The US DOT regulations specify packaging requirements for different types of materials. The US EPA has also promulgated regulations for the transport of hazardous wastes. These more stringent requirements include tracking shipments with manifests to ensure that wastes are delivered to their intended destinations.

State
The primary state agencies with jurisdiction over hazardous materials management are the DTSC and the RWQCB. Other state agencies involved in hazardous materials management are the Department of Industrial Relations (State OSHA implementation), OES (California Accidental Release Prevention implementation), Department of Fish and Wildlife (formerly Department of Fish and Game), Air Resources Board, California Department of Transportation (Caltrans), State Office of Environmental Health Hazard Assessment (Proposition 65 implementation) and California Integrated Waste Management Board. The enforcement agencies for hazardous materials transportation regulations are the California Highway Patrol (CHP) and Caltrans.

TECHNICAL BACKGROUND REPORT

Hazardous materials and waste transporters are responsible for complying with all applicable packaging, labeling, and shipping regulations.

Hazardous chemical and biohazardous materials management laws in California include, but are not limited to, the following statutes (and regulations promulgated thereunder): the Hazardous Materials Management Act; Hazardous Waste Control Act; Safe Drinking Water and Toxic Enforcement Act of 1986; Hazardous Substances Act; Hazardous Waste Management Planning and Facility Siting (Tanner Act); Hazardous Materials Storage and Emergency Response; and the California Medical Waste Management Act.

Within the California Environmental Protection Agency (Cal EPA), DTSC has primary regulatory responsibility for hazardous waste management and cleanup. DTSC also regulates hazardous waste under the authority of the RCRA and the California Health and Safety Code, as and implements the Hazardous Waste Control Law of 1972. Cal EPA is also responsible for implementing the Unified Hazardous Waste and Hazardous Materials Management Regulatory Program.

California Code of Regulations
State regulations applicable to hazardous materials are contained in the CCR. Title 22 and 26 of the CCR pertain to hazardous materials and the management of hazardous materials. Title 8 contains Construction Safety Orders pertaining to hazardous materials, including, but not limited to, lead.

In addition to Construction Safety Order 1532.1 from Title 8 of the CCR, lead-based paint exposure guidelines are provided by the Housing and Urban Development Department. In California, leadbased paint abatement must be performed and monitored by contractors with appropriate certification from the California Department of Health Services. Along with the DTSC, the RWQCB is responsible for implementing regulations pertaining to management of soil and groundwater investigation and cleanup. RWQCB regulations are contained in Title 27 of the CCR.

The California Accidental Release Prevention Program (CalARP; CCR Title 19, Division 2, Chapter

4.5) covers certain businesses that store or handle more than a specified volume of regulated substances at their facilities. The CalARP program regulations became effective on January 1, 1997, and include the provisions of the federal Accidental Release Prevention program (Title 40, CFR Part 68), with certain additions specific to the state pursuant to Article 2, Chapter 6.95, of the Health and Safety Code. The list of regulated substances is found in Article 8, Section 2770.5 of the CalARP program regulations. Businesses that use a regulated substance above the noted threshold quantity must implement an accidental release prevention program, and some may be required to complete a RMP. A RMP is a detailed engineering analysis of the potential accident factors present at a business and the mitigation measures that can be implemented to reduce this accident potential.

The purpose of a RMP is to decrease the risk of an off-site release of a regulated substance that might harm the surrounding environment and community. A RMP includes the following components: safety information, hazard review, operating procedures, training, maintenance, compliance audits, and incident investigation. The RMP must consider the proximity to sensitive populations located in schools, residential areas, general acute care hospitals, long-term health care facilities, and child day-care facilities, as well as external events such as seismic activity.

Hazardous Waste Control Law
California law provides the general framework for regulation of hazardous wastes by the Hazardous Waste Control Law (HWCL) passed in 1972. The HWCL provides for state regulation of existing hazardous waste facilities, which include “any structure, other appurtenances, and improvements on the land, used for treatment, transfer, storage, resource recovery, disposal, or recycling of hazardous wastes,” and requires permits for, and inspections of, facilities involved in generation and/or treatment, storage and disposal of hazardous wastes. DTSC is the state’s lead agency in implementing the HWCL.

Unified Hazardous Waste and Hazardous Materials Management Regulatory Program In January 1996, Cal EPA adopted regulations implementing a Unified Hazardous Waste and Hazardous Materials Management Regulatory Program (Unified Program). The six program elements of the Unified Program are: hazardous waste generators and hazardous waste on-site treatment, underground storage tanks, above-ground storage tanks, hazardous material release response plans and inventories, risk management and prevention program, and California Fire Code hazardous materials management plans and inventories. The program is implemented at the local level by a local agency – the Certified Unified Program Agency (CUPA). The CUPA is responsible for consolidating the administration of the six program elements within its jurisdiction.

SCEMD is the CUPA for Sacramento County.

California’s Hazardous Materials Release Response Plans and Inventory Law State and federal laws require detailed planning to ensure that hazardous materials are properly handled, used, stored, and disposed of, and, in the event that such materials are accidentally released, to prevent or to mitigate injury to health or the environment. California’s Hazardous Materials Release Response Plans and Inventory Law, sometimes called the “Business Plan Act,” aims to minimize the potential for accidents involving hazardous materials and to facilitate an appropriate response to possible hazardous materials emergencies. The law requires businesses that use hazardous materials to provide inventories of those materials to designated emergency response agencies, to illustrate on a diagram where the materials are stored on site, to prepare an emergency response plan, and to train employees to use the materials safely.

Worker and Workplace Hazardous Materials Safety
The California Division of Occupational Safety and Health (Cal/OSHA) is responsible for developing and enforcing workplace safety standards and assuring worker safety in the handling and use of hazardous materials. Among other requirements, Cal/OSHA obligates many businesses to prepare Injury and Illness Prevention Plans and Chemical Hygiene Plans. The Hazard Communication Standard requires that workers be informed of the hazards associated with the materials they handle. For example, manufacturers are to appropriately label containers, material safety data sheets are to be available in the workplace, and employers are to properly train workers.

TECHNICAL BACKGROUND REPORT

Hazardous Materials Transportation
CHP and Caltrans are the enforcement agencies for hazardous materials transportation regulations.

Transporters of hazardous materials and waste are responsible for complying with all applicable packaging, labeling, and shipping regulations. The OES also provides emergency response services involving hazardous materials incidents.

California Education Code
The California Education Code (Section 17210 et seq.) outlines the requirements of siting school facilities near or on known or suspected hazardous materials sites, or near facilities that emit hazardous air emissions, handle hazardous or acutely hazardous materials, substances, or waste.

The code requires that, prior to commencing the acquisition of property for a new school site, an environmental site investigation be completed to determine any health and safety risks associated with a site. All proposed school sites that will receive state funding for acquisition and/or construction must go through a comprehensive investigation and cleanup process under DTSC oversight. DTSC is required to be involved in the environmental review process to ensure that selected properties are free of contamination, or if the property is contaminated, that it is cleaned up to a level that is protective of students and faculty who will occupy the new school. All proposed school sites must be suitable for residential land use, which is DTSC’s most protective standard for children.

Local
Sacramento County Environmental Management Department (SCEMD) The SCEMD is responsible for promoting a safe and healthy environment in the county and enforcing hazardous waste laws and regulations at a local level. As the local CUPA, the SCEMD monitors the proper use, storage and clean-up of hazardous materials, monitoring wells, removal of leaky underground storage tanks, and permits for the collection, transport, use or disposal of refuse.

Hazardous waste laws and regulations are enforced locally by SCEMD. SCEMD’s Hazardous Materials Business Plan, which is administered throughout Sacramento County and its incorporated cities, is an element of the County’s CUPA program. Businesses are required to complete a Hazardous Materials Business Plan for safe storage and use of chemicals above reportable quantities (55 gallons for liquids, 500 pounds for solids and 200 cubic feet for compressed gases).

Other local regulations or regulating agency that are relevant to hazardous materials in the Policy Area include the City Department of Utilities, which monitors all groundwater discharges to ensure they are free of contamination through enforcement of the Department of Utilities Engineering Services Policy No. 0001 (adopted as Resolution No. 92-439 by the Sacramento City Council), and the Sacramento Metropolitan Air Quality Management District Rule 902 that protects the public from exposure to asbestos in the event of a release.

Area Plan for Emergency Response to Hazardous Materials Incidents in Sacramento County (Area Plan)
The SCEMD developed the Area Plan for Emergency Response to Hazardous Materials Incidents in Sacramento County (Sacramento County 2016). The Area Plan provides information for agencies involved in hazardous materials response within Sacramento County, including, but not limited to, the Sacramento County Sheriff’s Department, Sacramento City Fire Department, State OES, Sacramento County Health Department, Public Works, and the CHP, if needed to respond to a hazardous materials incident.

7.7 Emergency Response

INTRODUCTION
This section provides information on emergency response services in the Policy Area. Within the Policy Area, emergency response is guided by the City’s 2018 Emergency Operations Plan and the 2016 Sacramento County Local Hazard Mitigation Plan. These plans identify potential hazards and detail response actions. See the Regulatory Context discussion for a detailed description of the laws and regulations that shape the response to emergency situations in the Policy Area. For more information on potential hazards in the Policy Area, refer to Section 7.1 Geologic and Seismic Hazards, Section 7.2 Flood Hazards, Section 7.3 Fire Hazards, Section 7.4 Aviation Hazards, and Section 7.5 Hazardous Materials.

EXISTING CONDITIONS
The City’s Office of Emergency Management (OEM) provides comprehensive emergency management services for the City of Sacramento, including coordination of City-wide preparedness, planning, response, recovery, and mitigation activities. It is the mission of OEM to prepare City government and the community for potential natural, human-caused, and technological emergencies. The City of Sacramento’s 2018 Emergency Operations Plan identifies the following situations as hazards with potential to occur in the Policy Area: severe weather; flooding and levee or dam failure; major earthquake; hazardous material incident; major transportation accident; multi-casualty incident; urban-wildland interface fires; disease outbreak; landslide/subsidence, power outages; weather-related hazards; and homeland security hazards (nuclear attack, civil disturbance, and terrorism) (City of Sacramento 2018).

Most of Sacramento County’s disaster declarations are a result of extreme weather conditions, including heavy rain/thunderstorms, tornadoes, and fog. Between 1950 and 2011, there were 16 federal emergency declarations and 23 state emergency declarations in the county. Thirteen of the federal declarations and seventeen of the state declarations were associated with flood events. Of the three remaining federal declarations, one was related to drought and two to economic/agricultural losses due to severe weather and freezes. Together, these disasters resulted in over $700 million in damages (City of Sacramento 2015).

TECHNICAL BACKGROUND REPORT

Emergency Response
Police and Fire Response
The Sacramento Police Department (SPD) does not have an adopted response time standard.

Incoming calls are categorized from Priority 1 to 6, with urgency descending with priority level.

Priority 1 calls are considered life threatening situations and result in an immediate response to the scene. In 2018, the median response time for Priority 2 calls was 9 minutes and 53 seconds; response to Priority 6 calls was 1 hour and 7 minutes (City of Sacramento SPD 2019).

The first responding company from the Sacramento Fire Department (SFD), which is responsible for fire suppression and paramedic services, has a response time goal of arrival within 4 minutes 90 percent of the time. Medic units from the SFD have target response time of 8 minutes 90 percent of the time.

Response Routes
The City Department of Transportation works with SFD to ensure that emergency response routes provide the fastest possible route throughout the Policy Area. Records of emergency response routes located throughout the city are maintained by the SFD. Development activities that could potentially interfere with emergency response routes are required to notify the City to minimize impacts that could occur due to interference with the route.

Evacuation
In the Policy Area, threats that could warrant an evacuation response are: flooding; earthquake; fire; chemical, biological, radiological, or explosive hazardous materials release; dam failure; levee failure; civil disturbance; terrorism; and utility outage. In the event of an evacuation, an estimated 20 percent of the evacuating population will need some level of care and shelter until they can return to their homes or alternative sheltering. The Sacramento County has prepared a list of available shelters and determined that there are sufficient in-county resources to meet the needs of an evacuation (Sacramento County 2008).

Evacuation Routes
The City’s Emergency Operations Plan identifies specific evacuation routes for 21 different “evacuation areas” within the city. The Emergency Operations Plan also identifies access control points for each of these areas, as well as emergency shelters (City of Sacramento 2018).

Mutual Aid
To facilitate the coordination and flow of mutual aid, the State has been divided into six OES Mutual Aid Regions (and three administrative regions). The City of Sacramento is in Mutual Aid Region IV. The City maintains an Automatic Aid agreement with Sacramento County and the City of West Sacramento. Under the automatic aid agreement, all emergency calls are routed through a

central dispatch center and the nearest resource responds to the call. Statewide, California’s mutual aid system is designed to ensure that adequate resources, facilities, and other support are provided to jurisdictions whenever their own resources prove to be inadequate to cope with a given situation.

Local jurisdictions have the discretion to give and receive aid when needed, while state government is obligated to provide available resources to assist local jurisdictions in emergencies.

Emergency Care Facilities
There are six hospitals within the Policy Area that serve the region:
• Kaiser Permanente South Sacramento Medical Center (6600 Bruceville Road); • Mercy General Hospital (4001 J Street);
• Methodist Hospital of Sacramento (7500 Hospital Drive); • Shriners Hospital for Children – Northern California (2425 Stockton Boulevard); • Sutter Medical Center, Sacramento (2825 Capitol Avenue); and • UC Davis Medical Center (2315 Stockton Boulevard).

All of these facilities are designed and equipped to handle multiple, simultaneous patients during everyday activities and emergency situations.

Trauma Services
The Kaiser Permanente South Sacramento Medical Center and UC Davis Medical Center are certified trauma centers serving the Policy Area. These facilities provide an enhanced level of lifesaving care to victims of traumatic injuries. These facilities are staffed 24 hours per day with physicians, nurses, and other health care professionals who have special training in treating critical injuries to the head, spine and vital organs. Kaiser Permanente’s hospital is a Level II Trauma Center. The UC Davis Medical Center is a Level I trauma center and a Level I pediatric trauma center.

Public Alert and Warning
Public alert and warning systems are necessary to increase public awareness of an impending threat and provide clear instructions. In the Policy Area, existing systems include the Emergency Alert System, fire and law enforcement vehicle loudspeakers, Reverse 9-1-1, Sacramento 2-1-1, and agency websites. The Emergency Alert System is designed to provide emergency information via radio and television. The City of Sacramento’s Reverse 9-1-1 system can send pre-recorded messages to individual households and businesses with phone numbers listed in the 9-1-1 database.

The Community Services Planning Council, a non-profit organization, operates 2-1-1 in Sacramento County. Individuals can call into the system to request information on an emergency situation (Sacramento County 2008).

TECHNICAL BACKGROUND REPORT

REGULATORY CONTEXT
Federal
Federal Emergency Management Agency
As part of the U.S. Department of Homeland Security, the Federal Emergency Management Agency’s mission is to lead the effort to prepare the nation for all hazards and effectively manage federal response and recovery efforts following any incident. The Federal Emergency Management Agency also initiates proactive mitigation activities, trains first responders, and manages the National Flood Insurance Program and the U.S. Fire Administration.

Disaster Mitigation Act of 2000
This legislation reinforces the importance of pre-disaster infrastructure mitigation planning to reduce disaster losses nationwide, and is aimed primarily at the control and streamlining of the administration of federal disaster relief and programs to promote mitigation activities. Some of the major provisions of the Disaster Mitigation Act of 2000 include:
• Funding for pre-disaster mitigation activities,
• Developing experimental multi-hazard maps to better understand risk, • Establishing state and local government infrastructure mitigation planning requirements, • Defining how states can assume more responsibility in managing the Hazard Mitigation Grant Program, and
• Adjusting ways in which management costs for projects are funded.

The mitigation planning provisions outlined in Section 322 of the act establish performance-based standards for mitigation plans and require states to have a public assistance program to develop county government plans. The consequence for counties of failure to develop an infrastructure mitigation plan is the chance of a reduced federal share of damage assistance.

State
California Code of Regulations, Title 19
The California Code of Regulations establishes regulations related to emergency response and preparedness under the OES. The OES serves as the lead state agency for emergency management and coordinates the state response to major emergencies in support of local government. State OES may activate the Regional Emergency Operations Center and/or the State Operations Center at OES Headquarters in Sacramento to coordinate and support operations in affected areas. It is responsible for collecting, verifying, and evaluating information about the emergency, facilitating communication with local government, and providing affected jurisdictions with additional resources when necessary. The OES also maintains oversight of the State’s mutual aid system. The

State OES director assists the Governor in coordinating the activities of state government departments and agencies, and supporting emergency operations conducted by local governments.

If the situation warrants, a “local emergency” is proclaimed, the local Emergency Operating Center (EOC) is activated, and State OES will be advised. If appropriate, the State OES Director recommends to the Governor that a “state of emergency” be proclaimed in affected areas and, as required, in areas from which mutual aid might be needed. During this time, state agencies will be expected to immediately respond to requests for assistance from affected areas. If the Governor requests and receives a Presidential declaration of an “emergency” or a “major disaster” under Public Law 93-288 (Federal Disaster Relief Act of 1974), he will appoint a State Coordinating Officer (SCO). A Federal Coordinating Officer and the SCO will coordinate state and federal efforts to support local operations.

Emergency Operations Center. An EOC provides a central location of authority and information, and allows for face-to-face coordination among personnel who must make policy-level emergency decisions. The following functions are performed in the City of Sacramento’s EOC, or alternate EOC as necessary:
• Receiving and disseminating warning.
• Managing emergency operations.
• Developing emergency response and recovery policies.
• Collecting intelligence from, and disseminating information to, the various EOC representatives, and assuring coordination between the Field Operations Center locations, building managers and departmental safety representatives throughout the City system.

Coordination with Sacramento County, the Governor's Office of Emergency Services, the Federal Emergency Management Agency, and other appropriate outside agencies. • Preparing intelligence/information summaries, situation reports, operation progress reports, and other reports as required; preparing the incident action plan. • Maintaining general and specific maps, information display boards and other data pertaining to emergency operations.
• Continuing analysis and evaluation of all data pertaining to emergency operations. • Controlling and coordinating, within established policy, the operations and logistical support of resources committed to City departments.

The Director of Emergency Services is responsible for the state of readiness of the primary and alternate EOC locations. Readiness includes adequate communications, staff and team training, EOC support such as logistics, displays, and proper documentation procedures. Generally, the EOC will be activated under any of the following conditions:
• An earthquake causing widespread damage;
• A Hazardous Material Incident affecting a portion of the City of Sacramento;

TECHNICAL BACKGROUND REPORT

• A major flood affecting the City of Sacramento and surrounding areas; or • An emergency situation that has occurred or might occur that is of such a magnitude it will require a large commitment of City of Sacramento or Mutual Aid resources over an extended period of time to control or mitigate.

The EOC can be activated and staffed to the extent deemed necessary to deal with the existing or impending emergency. The following individuals or their appointed alternate representative are authorized to activate the City of Sacramento Emergency Operations Center: 1) Director of Emergency Services - City Manager; 2) Assistant Director of Emergency Services – Director of Emergency Management; or 3) Fire Chief. Upon authorization to activate the EOC, City staff assigned to the Emergency Operations Center will be notified to report as needed.

Types of Emergencies
Peacetime Emergencies
The City's response to natural disasters or technological incidents is dictated by the type and magnitude of the emergency. Generally, response to a major peacetime emergency situation will progress from local to regional, state, and federal involvement. For planning purposes, State OES has established three levels of emergency response to peacetime emergencies. Responses are based on the severity of the situation and the availability of local resources. These levels do not directly correlate with the four classifications of nuclear power emergencies. • Level I: A minor to moderate incident in which local resources are adequate and available.

A “local emergency” may or may not be proclaimed. The City's EOC will not be activated. • Level II: A moderate to severe emergency in which local resources are not adequate and mutual aid may be required on a regional or statewide basis. A “local emergency” will be proclaimed and a “state of emergency” might be proclaimed. The City's EOC may be activated on a partial or full activation basis.
• Level III: A major disaster in which resources in or near the impacted area are overwhelmed and extensive state and/or federal resources are required. A “local emergency” and a “state of emergency” will be proclaimed and a Presidential Declaration of an “emergency” or “major disaster” will be requested. The City's EOC will be activated.

Wartime Emergencies
The impact of wartime emergencies may range from minor inconveniences such as food and petroleum shortages to a worst case scenario involving an attack on the United States utilizing nuclear weapons. Protective measures to be employed in the event of a threatened or actual attack on the United States include:
• In-place protection using designated fallout shelters.

• Construction of fallout shelters, given adequate lead time. • Upgrading of homes and other buildings to a radiation Protection Factor of at least 40, given adequate lead time.
• Spontaneous evacuation by an informed citizenry. Crisis relocation is not considered a viable option within the context of this plan.

Standardized Emergency Management System
The Standardized Emergency Management System (SEMS) is required by Government Code Section 8607 (a) for managing response to multi-agency and multi-jurisdiction emergencies in California. It provides the mechanism by which local governments request assistance. SEMS consists of five organizational levels that are activated as necessary: field response, local government, operational area, OES Mutual Aid Regions, State OES. The SEMS has been adopted by the City of Sacramento for managing response to multi-agency and multi-jurisdiction emergencies, and to facilitate communications and coordination between all levels of the system and among all responding agencies.

The City of Sacramento subscribes to and uses the Incident Command System. Unified Command will be established whenever possible, however, generally:

SPD will provide Incident Commanders for:
• Crime scenes.
• Civil disturbances.
• Evacuation operations.
• Search and rescue operations.
• Transportation accidents (city streets only).
• Traffic control operations.

SFD will provide Incident Commanders for:
• Fire suppression operations.
• Hazardous material incidents.
• Urban search and rescue operations.
• Heavy rescue operations.
• Radiological incidents.

TECHNICAL BACKGROUND REPORT

Local
Sacramento County Local Hazard Mitigation Plan
The Sacramento County Local Hazard Mitigation Plan applies to Sacramento County and the following communities: Citrus Heights; Elk Grove; Folsom; Galt; Isleton; Ranch Cordova; and Sacramento (Sacramento County 2016). In addition, the plan also covers 17 special districts and organizations within Sacramento County that meet the Disaster Mitigation Act definition of “local government” and participated in the planning process.

The Sacramento County Local Hazard Mitigation Plan aims to reduce or eliminate long term risk to people and property from natural disasters. The plan identifies goals, objectives, and measure for hazard mitigation and risk reduction to make communities less vulnerable, more disaster resistant, and sustainable. Information in the plan can also be used to help guide and coordinate mitigation activities and local policy for future land use decisions.

The plan is based on a hazard identification and risk assessment of all the potential natural hazards that could impact Sacramento County. The plan also includes a review of the County’s current capabilities with regard to reducing hazard impacts, and recommends additional action items for the County and its jurisdictions to reduce their vulnerability to potential disasters. It sets goals to promote awareness of hazards and vulnerability, and maximize use of available funding.

City of Sacramento Emergency Operations Plan
The City of Sacramento Emergency Operations Plan addresses planned response to extraordinary emergency situations associated with natural disasters, technological (human caused) emergencies, and war emergency operations in, or affecting, the City of Sacramento (City of Sacramento 2018).

The Emergency Operations Plan establishes:
• An Emergency Management Organization required to mitigate any significant emergency or disaster affecting the City of Sacramento;
• The policies, responsibilities, and procedures required to protect the health and safety of the populous, public and private property, and the environment from the effects of natural and human-caused (technological) emergencies and disasters; • The operational concepts and procedures associated with field response to emergencies, Emergency Operations Center (EOC) activities, and the recovery process; and • The organizational framework for implementation of the Standardized Emergency Management System (SEMS) within the City of Sacramento.

The City of Sacramento Emergency Operations Plan is the principal guide for the city and special district agencies in responding to and mitigating emergencies and disasters affecting the city’s geographic boundaries. The Plan is intended to facilitate multi-agency and multi-jurisdictional coordination, particularly between Local Government, Operational Area (county boundary), and State Response Levels, and appropriate Federal agencies, in emergency operations.

Agencies, private enterprises, and volunteer organizations having roles and responsibilities established by the Emergency Operations Plan are encouraged to develop standard operating procedures (SOPs) and emergency response checklists based on the provisions of the plan, which should be used in conjunction with applicable local contingency plans, the Operational Area Emergency Operation Plan, and State Emergency Plan. The plan is designed to guide users through the four phases of emergency management: preparedness, response, recovery, and mitigation (City of Sacramento 2018).

Sacramento Police Department
The SPD’s Homeland Security Division, managed by one captain and one lieutenant, is responsible for conducting regional threat and vulnerability assessments, developing regional and agency terrorism response plans, coordinating and conducting regional interdisciplinary terrorism response training, designing and coordinating training exercises, and organizing volunteers to assist with disaster situations (City of Sacramento 2015). The Division also coordinates with the Central California Intelligence Center, the City of Sacramento Office of Emergency Services, and the Terrorism Liaison Officer Program.

7.8 Findings

GEOLOGIC AND SEISMIC HAZARDS
• Within the City of Sacramento and the Sacramento region, there are no known faults. The greatest earthquake threat to the city comes from earthquakes along Northern California’s major faults, which are the San Andreas, Calaveras, and Hayward faults. Ground shaking on any of these faults could cause shaking within the city to an intensity of 5 to 6 Mw. • The city’s seismic ground-shaking hazard is low, ranking among the lowest in the state.

The city is in Seismic Zone 3; accordingly, any future development, rehabilitation, reuse, or possible change of use of a structure would be required to comply with all design standards applicable to Seismic Zone 3.
• Areas susceptible to liquefaction hazards include the Central City, Pocket, and North and South Natomas. However, because soil types can vary considerably and depth to groundwater is an important factor in liquefaction potential, site-specific geotechnical studies should be used to determine whether a specific location may be subject to liquefaction hazard.
• Because the city is generally flat, slope stability, landslide, and erosion hazards do not present substantial hazards to people and property. Site-specific effects of erosion are generally limited to construction, when stormwater runoff can carry sediment into local waterways or fugitive dust emissions.
• A general review of soil characteristics indicate most of the Policy Area is underlain by soils that exhibit low expansion (shrink/swell) properties. Areas in the Natomas and Valley Hi

TECHNICAL BACKGROUND REPORT

neighborhoods are the primary locations where expansive soils are present. Site-specific geotechnical investigations should be used to delineate expansive soils at a site. • Land subsidence has been identified as a potential hazard in the Policy Area, primarily related to groundwater withdrawal.

FLOOD HAZARDS
• Major surface water resources in the Policy Area include the Sacramento River, the American River, and other natural and man-made drainage features. Flood control facilities along the rivers in Sacramento include a comprehensive system of dams, levees, overflow weirs, drainage pumping plants, and flood control bypass channels. • Over the course of the City’s past, floods have been the most frequent and considerable natural hazard that has affected the city. Three different types of floods that include flash, riverine, and urban storm water often occur as a result of severe weather and excessive rainfall, either in the city or in areas upstream of the city. • An increase in the urbanization within the Policy Area will increase the number of structures and people exposed to the risks of flooding from floods that are greater than the 100-year flood event.
• The OES has mapped the dam inundation zones in the city. The dam inundation map for Folsom Dam, the largest along the American River, shows that a majority of the Policy Area would be inundated with water beyond the capacity of the current flood control levees along the river. The occurrence of dam inundation is based on extremely remote conditions.
• Climate change has the potential to have an effect on the frequency, magnitude and duration of flood events that could increase the number of structures and people exposed to the risks of flooding. (Fire Hazards
• The City has identified areas characterized by older buildings constructed prior to requirements for fire-resistant construction materials, internal sprinklers, and other precautions. These areas pose an increased urban fire hazard. • The areas along the American River Parkway from Watt Avenue to the Sacramento River (especially in the vicinity of Bushy Lake) and along the Garden Highway in the Natomas area are susceptible to wildlife fires.

AVIATION HAZARDS
• The Airport Land Use Commission establishes and implements standards that minimize the public’s exposure to airport safety hazards and prevent the intrusion of incompatible land uses around airports.

NOISE
• Over the entire Policy Area, the largest source of noise is generated by vehicle traffic on freeways and surface streets. This will continue to be the noise source that affects most people in the Sacramento area. Other sources of noise exist as well and can be grouped into three categories:

1. Non-road transportation noise: This includes noise sources such as heavy rail, light rail, and noise generated by airport operations.

2. Stationary point-source noise: Mostly heavy-commercial or industrial operations that generate noise as part of normal operations. Noise can be an issue especially where heavy equipment is consistently used in outdoor areas.

3. Places where trucks congregate: This includes truck stops, repair facilities, and distribution hubs.
• Sources that would seem intuitively to generate high noise levels, such as large manufacturing facilities or utility plans, may not generate much noticeable noise at all, due to noise-generating equipment stored inside many industrial uses and distance of equipment to the property line (and therefore distance to nearby sensitive receptors).

HAZARDOUS MATERIALS
• Hazardous materials use and waste generators in the Policy Area include industries, businesses, public and private institutions, and households. Federal, state, and local agency databases maintain comprehensive lists of facilities using large quantities of hazardous materials, as well as facilities generating hazardous waste. Some of these facilities use certain classes of hazardous materials that require accidental release scenario modeling and RMPs to protect surrounding land uses.
• The City of Sacramento Fire Department has a hazardous materials incident response team and works in cooperation with other regional and state agencies in the event of major emergencies.
• There is one hazardous materials treatment, storage, and disposal facility in the Policy Area, and there are three general geographic areas where TSD facilities could be located (Sacramento International Airport area, Fruitridge/Florin area, and Airport/Meadowview – South Sacramento area). Additional comprehensive evaluation would be necessary to select specific site(s).
• Several sites in the Policy Area are under agency oversight for soil or groundwater contamination. One site is included on the federal Superfund list (Sacramento Army Depot). Most of the soil and groundwater contamination in the Policy Area is related to leaking underground fuel storage tanks, which are either being investigated or remediated under the oversight of SCEMD or RWQCB staff. Some contamination has also occurred from historic uses related to transportation (e.g., railyards) and materials processing.

TECHNICAL BACKGROUND REPORT

EMERGENCY RESPONSE
• The City has an Emergency Operations Plan that addresses the City’s planned response to extraordinary emergency situations associated with natural disasters, technological incidents, and nuclear defense operations. The County of Sacramento has a Local-Hazard Mitigation Plan, which is a multi-jurisdictional plan that aims to reduce or eliminate longterm risk to people or property from natural disasters and their effects. • The City has adopted the Standardized Emergency Management System for managing response to multi-agency and multi-jurisdiction emergencies and to facilitate communications and coordination between all levels of the system and among all responding agencies. Additionally, Sacramento is part of the State’s mutual aid system and can give or receive support in an emergency situation.

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APPENDIX A:

Roadway Levels of Service
ID Name From To Lanes Volume LOS
1 El Centro Rd Hankview Rd Radio Rd Arterial - Moderate Access Control 4 11,323 A 2 El Centro Rd/W El Camino Rd Radio Rd I-80 Arterial - Moderate Access Control 2 13,346 C 3 W Elkhorn Blvd E Commerce Way Natomas Blvd Arterial - Moderate Access Control 2 16,654 E 4 Del Paso Rd Power Line Rd I-5 Arterial - Moderate Access Control 4 22,683 B 5 Del Paso Rd I-5 Natomas Blvd Arterial - High Access Control 6 43,098 C 6 Del Paso Rd Natomas Blvd Gateway Park Blvd Arterial - High Access Control 6 19,110 A 7 San Juan Rd El Centro Rd Duckhorn Dr Major Collector 2 6,529 A 8 Del Paso Rd Gateway Park Blvd Northgate Blvd Arterial - Moderate Access Control 4 20,728 A 9 Northgate Blvd Main Ave North Market Blvd Arterial - Moderate Access Control 4 26,556 C 10 Northgate Blvd North Market Blvd I-80 Arterial - High Access Control 6 44,860 C 11 Natomas Blvd W Elkhorn Blvd Del Paso Rd Arterial - Moderate Access Control 4 27,718 C 12 Truxel Rd Arena Blvd I-80 Arterial - High Access Control 8 58,072 E 13 Truxel Rd Del Paso Rd Arena Blvd Arterial - High Access Control 8 23,934 A 14 North Market Blvd Truxel Rd Northgate Blvd Arterial - Moderate Access Control 4 13,251 A 15 Arena Blvd I-5 Truxel Rd Arterial - High Access Control 6 20,670 A 16 Arena Blvd El Centro Rd I-5 Arterial - High Access Control 6 26,798 A 17 E Commerce Way W Elkhorn Blvd N Park Dr Arterial - Moderate Access Control 2 7,967 A 18 E Commerce Way N Park Dr Del Paso Rd Arterial - Low Access Control 4 20,412 B 19 E Commerce Way Del Paso Rd Arena Blvd Arterial - High Access Control 6 16,077 A 20 Del Paso Blvd Globe Ave El Camino Ave Arterial - High Access Control 4 9,443 A 21 Del Paso Blvd El Camino Ave Marysville Blvd Arterial - High Access Control 4 11,841 A 22 Del Paso Blvd Marysville Blvd Arcade Blvd Major Collector 4 4,948 A 23 Rio Linda Blvd Main Ave Bell Rd Major Collector 2 8,189 A 24 Rio Linda Blvd Grand Ave Arcade Blvd Major Collector 4 11,605 A 25 Rio Linda Blvd Arcade Blvd Lampasas Ave Major Collector 4 14,445 A 26 Marysville Blvd Rio Linda Blvd Bell Ave Major Collector 2 7,057 A 27 Marysville Blvd I-80 Arcade Blvd Arterial - Low Access Control 4 26,277 D 28 Marysville Blvd Arcade Blvd Del Paso Blvd Arterial - Low Access Control 4 10,436 A 29 Norwood Ave Main Ave I-80 Arterial - High Access Control 4 31,376 C 30 Norwood Ave Silver Eagle Rd El Camino Ave Arterial - Moderate Access Control 2 9,872 A 31 El Camino Ave Grove Ave Del Paso Blvd Arterial - Moderate Access Control 2 13,508 C 32 El Camino Ave Del Paso Blvd I-80 Business Arterial - Moderate Access Control 4 32,946 E 33 Arden Way Del Paso Blvd Royal Oaks Dr Arterial - Moderate Access Control 4 23,574 B 34 Arden Way Royal Oaks Dr I-80 Business Arterial - Moderate Access Control 4 36,503 F 35 Grand Ave Norwood Ave Rio Linda Blvd Minor Collector 2 7,218 D 36 Silver Eagle Rd Northgate Blvd Norwood Ave Arterial - Moderate Access Control 2 13,760 C 37 Main Ave Northgate Blvd Norwood Ave Arterial - Low Access Control 4 16,244 A 38 Main Ave Norwood Ave Rio Linda Blvd Major Collector 2 9,054 B 39 Main Ave Marysville Blvd Raley Blvd Major Collector 2 1,334 A 40 W Elkhorn Blvd Natomas Blvd Rio Linda Blvd Arterial - Moderate Access Control 2 17,935 A 42 Arcade Blvd Marysville Blvd Roseville Rd Major Collector 2 18,241 F 43 Raley Blvd Ascot Ave Bell Ave Arterial - Moderate Access Control 2 20,156 F 44 Bell Ave Norwood Ave Winters St Arterial - Moderate Access Control 2 13,660 C 45 Roseville Rd Arcade Blvd Watt Ave Arterial - Moderate Access Control 2 17,645 E 46 Winters St Bell Ave I-80 Arterial - Low Access Control 4 15,021 A 47 Royal Oaks Dr Arden Way SR-160 Major Collector 2 6,406 A 48 Dry Creek Rd Marysville Blvd Grand Ave Major Collector 2 3,335 A 49 Arden Garden Connector Northgate Blvd Del Paso Blvd Arterial - High Access Control 4 24,657 B 50 San Juan Rd Truxel Rd Northgate Blvd Arterial - Low Access Control 4 18,885 B 51 W El Camino Ave I-80 I-5 Arterial - Moderate Access Control 4 20,833 A 52 W El Camino Ave I-5 Truxel Rd Arterial - High Access Control 4 25,760 B 53 W El Camino Ave Truxel Rd Northgate Blvd Arterial - Moderate Access Control 4 18,730 A 54 W El Camino Ave Northgate Blvd Grove Ave Arterial - Moderate Access Control 2 14,327 C 55 Garden Hwy I-80 Orchard Ln Arterial - Moderate Access Control 2 1,805 A 56 Garden Hwy Gateway Oaks Dr I-5 Arterial - High Access Control 4 16,199 A 57 Northgate Blvd I-80 San Juan Rd Arterial - High Access Control 4 32,742 D 58 Northgate Blvd Silver Eagle Rd Arden Garden Connector Arterial - High Access Control 4 21,246 A 60 Truxel Rd W El Camino Ave Garden Hwy Arterial - High Access Control 4 16,374 A 61 Truxel Rd San Juan Rd W El Camino Ave Arterial - High Access Control 4 25,272 B 62 Truxel Rd I-80 San Juan Rd Arterial - High Access Control 6 41,435 B 63 I St 5th St 12th St Arterial - One Way Low Access Control 3 22,315 F 64 I St 21st St 29th St Major Collector 2 5,190 A
65 L St 5th St 15th St Arterial - One Way Low Access Control 3 11,148 C 66 L St 15th St 29th St Arterial - One Way Low Access Control 2 5,091 A 67 P St 16th St 29th St Arterial - One Way Low Access Control 2 8,019 A 68 J St 3rd St 7th St Arterial - One Way Low Access Control 3 22,413 F 69 J St 21st St 29th St Arterial - One Way Low Access Control 2 13,311 D 70 Q St 3rd St 10th St Arterial - One Way Low Access Control 3 15,630 F 71 7th St P St J St Arterial - One Way Low Access Control 3 5,328 A 72 12th St D St I St Arterial - One Way Low Access Control 3 8,053 A 73 N St 10th St 16th St Arterial - One Way Low Access Control 3 7,786 A 74 15th St X St Broadway Arterial - One Way Low Access Control 3 9,653 B 75 15th St J St P St Arterial - One Way Low Access Control 3 10,570 C 76 16th St P St W St Arterial - One Way Low Access Control 3 15,551 F Segment
Functional Classification
Existing (2019)
ID Name From To Lanes Volume LOS
Segment
Functional Classification
Existing (2019)
77 29th St J St P St Arterial - One Way Low Access Control 3 11,761 C 78 30th St P St J St Arterial - One Way Low Access Control 3 9,331 B 79 Alhambra Blvd Stockton Blvd Broadway Arterial - Low Access Control 2 13,762 E 80 Broadway 3rd St 5th St Arterial - Low Access Control 2 10,285 B 81 Broadway Riverside Blvd Franklin Blvd Arterial - Low Access Control 4 20,420 B 82 Richards Blvd Bercut Dr N 7th St Arterial - High Access Control 4 26,432 B 83 Exposition Blvd SR-160 I-80 Business Arterial - High Access Control 4 22,903 A 84 Exposition Blvd I-80 Business Arden Way Arterial - High Access Control 6 35,049 A 85 Arden Way I-80 Business Exposition Blvd Arterial - High Access Control 8 54,546 E 86 El Camino Ave I-80 Business Howe Ave Arterial - Moderate Access Control 4 38,432 F 87 Marconi Ave I-80 Business Bell St Arterial - Moderate Access Control 4 25,704 C 88 Auburn Blvd Howe Ave Watt Ave Major Collector 2 8,722 B 89 Auburn Blvd Watt Ave SR-244 Major Collector 4 21,160 C 90 Auburn Blvd El Camino Ave Arcade Blvd Major Collector 2 8,986 B 91 American River Dr Howe Ave Watt Ave Major Collector 2 11,057 C 92 Heritage Ln Arden Way Exposition Blvd Major Collector 4 8,178 A 93 Howe Ave US-50 Fair Oaks Blvd Arterial - High Access Control 4 55,633 F 101 Howe Ave Fair Oaks Blvd Hurley Way Arterial - High Access Control 6 51,674 D 102 Howe Ave Hurley Way El Camino Ave Arterial - High Access Control 6 29,860 A 103 Howe Ave El Camino Ave Auburn Blvd Arterial - Moderate Access Control 2 16,596 E 105 Alta Arden Ex Howe Ave Fulton Ave Arterial - High Access Control 4 16,244 A 106 Fair Oaks Blvd Howe Ave Munroe St Arterial - High Access Control 6 29,904 A 107 Fair Oaks Blvd Munroe St Watt Ave Arterial - Moderate Access Control 4 28,901 D 108 Fair Oaks Blvd Watt Ave Eastern Ave Arterial - High Access Control 4 42,434 F 110 Watt Ave Fair Oaks Blvd US-50 Arterial - High Access Control 6 84,384 F 112 Elvas Ave/56th St 52nd St H St Major Collector 2 8,239 A 113 Elvas Ave J ST Folsom Blvd Major Collector 3 18,988 F 114 H St Alhambra Blvd 45th St Major Collector 2 13,876 E 115 H St 45th St Carlson Dr Major Collector 2 17,635 F
116 J St Alhambra Blvd 56th St Arterial - Moderate Access Control 2 15,781 D 117 Folsom Blvd 47th St 65th St Arterial - Moderate Access Control 4 18,426 A 118 Folsom Blvd Howe Ave Jackson Hwy Arterial - Moderate Access Control 4 38,544 F 119 Power Inn Rd US 50 14th Ave Arterial - High Access Control 6 62,511 F 120 Stockton Blvd Alhambra Blvd US-50 Arterial - Moderate Access Control 4 14,504 A 121 Jackson Hwy Folsom Blvd S Watt Ave Arterial - Moderate Access Control 2 14,807 D 122 Hornet Dr US-50 WB Ramps Folsom Blvd Major Collector 4 19,139 B 123 La Rivera Dr Watt Ave Folsom Blvd Major Collector 2 18,052 F 124 Carlson Dr Moddison Ave H St Minor Collector 2 10,602 F 125 College Town Dr Hornet Dr La Rivera Dr Arterial - Low Access Control 4 19,172 B 126 39th St Folsom Blvd J St Minor Collector 2 4,451 A
127 59th St Folsom Blvd Broadway Arterial - Moderate Access Control 2 10,580 A 128 C St 33rd St McKinley Blvd Major Collector 2 5,865 A 129 Sutterville Rd Riverside Blvd Freeport Blvd Arterial - Moderate Access Control 2 15,111 D 130 Sutterville Rd 24th St Franklin Blvd Arterial - Moderate Access Control 4 26,241 C 131 Seamas Ave I-5 S Land Park Dr Arterial - Moderate Access Control 4 15,872 A 132 Fruitridge Rd S Land Park Dr Freeport Blvd Arterial - Moderate Access Control 4 17,294 A 133 Fruitridge Rd Freeport Blvd Franklin Blvd Arterial - Moderate Access Control 4 27,704 C 134 Fruitridge Rd Franklin Blvd SR-99 Arterial - Moderate Access Control 4 26,800 C 135 Franklin Blvd Broadway 5th Ave Arterial - Moderate Access Control 2 7,171 A 136 Franklin Blvd Sutterville Rd Fruitridge Rd Arterial - Moderate Access Control 4 20,994 A 137 Freeport Blvd Sutterville Rd (S) Fruitridge Rd Arterial - Moderate Access Control 4 24,087 B 138 Riverside Blvd Broadway 2nd Ave Major Collector 3 12,519 D 139 Riverside Blvd Sutterville Rd Seamas Ave Arterial - Moderate Access Control 2 6,932 A 140 Land Park Dr Broadway Vallejo Way Major Collector 2 13,011 E 141 S Land Park Dr Sutterville Rd Seamas Ave Major Collector 2 5,067 A 142 24th St Sutterville Rd Fruitridge Rd Major Collector 4 9,357 A 143 Stockton Blvd US-50 Broadway Arterial - Moderate Access Control 4 26,523 C 144 Stockton Blvd Broadway Fruitridge Rd Arterial - Moderate Access Control 4 19,570 A 145 Broadway Alhambra Blvd Stockton Blvd Arterial - Moderate Access Control 4 15,768 A 146 Broadway Stockton Blvd 65th St Arterial - Moderate Access Control 2 16,311 E 147 65th St Elvas Ave 14th Ave Arterial - Moderate Access Control 4 30,693 D 148 Power Inn Rd 14th Ave Fruitridge Rd Arterial - Moderate Access Control 4 37,908 F 149 12th Ave Martin Luther King Jr Blvd SR-99 Major Collector 2 19,016 F 150 14th Ave 65th St Power Inn Rd Arterial - Low Access Control 2 12,848 D 151 Florin Perkins Rd Folsom Blvd Fruitridge Rd Arterial - Moderate Access Control 4 11,297 A 152 Fruitridge Rd SR-99 44th St Arterial - High Access Control 4 31,033 C 153 Fruitridge Rd 44th St Stockton Blvd Arterial - Moderate Access Control 4 30,409 D 154 Fruitridge Rd Stockton Blvd 65th St Arterial - Moderate Access Control 4 20,061 A 155 Fruitridge Rd 65th St Florin Perkins Rd Arterial - Moderate Access Control 4 18,052 A 156 Fruitridge Rd Florin Perkins Rd S Watt Ave Arterial - Moderate Access Control 2 14,102 C 157 Martin Luther King Jr Blvd Broadway Fruitridge Rd Major Collector 2 9,458 B 158 T St Stockton Blvd 59th St Major Collector 2 3,039 A 159 33rd St 4th Ave 12th Ave Minor Collector 2 4,770 A
160 Raley Blvd Bell Ave I-80 Arterial - Moderate Access Control 4 33,804 E ID Name From To Lanes Volume LOS
Segment
Functional Classification
Existing (2019)
161 S Watt Ave US-50 Kiefer Blvd Arterial - High Access Control 6 53,280 D 162 Florin Rd Riverside Blvd Havenside Dr Arterial - High Access Control 4 9,950 A 163 Florin Rd Havenside Dr I-5 Arterial - High Access Control 4 38,574 E 164 Riverside Blvd/Pocket Rd Florin Rd Greenhaven dr Major Collector 4 10,076 A 165 Pocket Rd Greenhaven dr Freeport Blvd Arterial - High Access Control 4 28,830 C 166 43rd Ave Gloria Dr 13th St Major Collector 2 6,460 A 167 S Land Park Dr Windbridge Dr Florin Rd Major Collector 2 4,257 A 168 Gloria Dr Florin Rd 43rd Ave Minor Collector 2 4,229 A 169 Greenhaven Dr Gloria Dr Florin Rd Major Collector 2 5,565 A 170 Freeport Blvd Pocket Rd South City Limits Arterial - Moderate Access Control 2 11,727 B 171 Freeport Blvd Florin Rd Pocket Rd Arterial - High Access Control 4 17,356 A 172 24th St Fruitridge Rd Florin Rd Major Collector 4 16,026 A 173 24th St Florin Rd Meadowview Rd Major Collector 4 15,144 A 174 Meadowview Rd Freeport Blvd Brookfield Dr Arterial - Moderate Access Control 4 31,108 D 175 Florin Rd Freeport Blvd Franklin Blvd Arterial - Moderate Access Control 4 36,030 F 176 43rd Ave/Blair Ave 13th St Freeport Blvd Arterial - Low Access Control 2 7,647 A 177 47th Ave 24th St Franklin Blvd Arterial - Moderate Access Control 4 23,856 B 178 Franklin Blvd Fruitridge Rd 47th Ave Arterial - Moderate Access Control 4 16,703 A 180 Stockon Blvd Florin Rd Mack Rd Arterial - Moderate Access Control 4 30,333 D 181 65th St 14th Ave Fruitridge Rd Arterial - High Access Control 4 23,525 A 182 65th Ex Elder Creek Rd Stockton Blvd Arterial - High Access Control 4 21,719 A 183 Power Inn Rd Fruitridge Rd Florin Rd Arterial - Moderate Access Control 4 29,621 D 184 S Watt Ave Kiefer Blvd Jackson Hwy Arterial - Moderate Access Control 4 40,501 F 185 Florin Rd Franklin Blvd SR-99 Arterial - High Access Control 6 44,392 C 186 Florin Rd SR-99 65th St Arterial - High Access Control 6 57,361 E 187 Florin Rd 65th St Stockton Blvd Arterial - High Access Control 6 36,269 B 188 Florin Rd Stockton Blvd Power Inn Rd Arterial - High Access Control 4 29,785 C 189 Florin Rd Power Inn Rd Florin Perkins Rd Arterial - Moderate Access Control 4 23,756 B 190 Elder Creek Rd Stockton Blvd Florin Perkins Rd Arterial - Moderate Access Control 4 27,088 C 191 Elder Creek Rd South Watt Avenue Hedge Ave Arterial - Moderate Access Control 2 7,203 A 192 Florin Perkins Rd Fruitridge Rd Elder Creek Rd Arterial - Moderate Access Control 4 20,583 A 193 Florin Perkins Rd Elder Creek Rd Florin Rd Arterial - Moderate Access Control 4 21,658 B 194 Mack Rd Meadowview Rd Franklin Blvd Arterial - High Access Control 4 22,280 A 195 Mack Rd Franklin Blvd Center Pkwy Arterial - High Access Control 4 25,886 B 196 Mack Rd Center Pkwy Stockton Blvd Arterial - High Access Control 4 38,136 E 197 Center Pkwy Tangerine Ave Mack Rd Arterial - Moderate Access Control 2 7,035 A 198 Center Pkwy Mack Rd Bruceville Rd Arterial - Moderate Access Control 4 6,590 A 199 Valley Hi Dr Franklin Blvd Center Pkwy Major Collector 2 8,894 B 200 Valley Hi Dr Center Pkwy Mack Rd Arterial - Moderate Access Control 4 20,939 A 201 Bruceville Rd Valley Hi Dr Consumnes River Blvd Arterial - Moderate Access Control 4 19,630 A 202 Bruceville Rd Consumnes River Blvd Calvine Rd Arterial - High Access Control 6 37,068 B 203 Franklin Blvd Village Wood Dr Big Horn Blvd Arterial - High Access Control 4 24,123 B 204 Franklin Blvd Mack Rd Turnbridge Dr Arterial - High Access Control 4 25,572 B 205 Franklin Blvd 47th Ave Turnbridge Dr Arterial - Moderate Access Control 4 24,672 B 206 Stockton Blvd Fruitridge Rd Florin Rd Arterial - Moderate Access Control 4 29,651 D 207 65th Ex Stockton Blvd Florin Rd Arterial - Moderate Access Control 4 19,924 A 208 Power Inn Rd Florin Rd Elsie Ave Arterial - Moderate Access Control 4 29,391 D 210 47th Ave Franklin Blvd SR-99 Arterial - High Access Control 6 29,691 A 211 47th Ave SR-99 Stockton Blvd Arterial - Moderate Access Control 4 35,641 E 212 Franklin Blvd Mack Rd Village Wood Dr Arterial - High Access Control 4 27,950 B 254 Elkhorn Blvd SR-99 E Commerce Way Arterial - Moderate Access Control 2 20,794 F 257 Freeport Blvd Sutterville Rd (N) Sutterville Rd (S) Arterial - Moderate Access Control 4 27,747 C 258 Folsom Blvd US-50 Howe Ave Arterial - Moderate Access Control 4 20,303 A 260 Cosumnes River Blvd Franklin Blvd Center Pkwy Arterial - High Access Control 2 22,868 F 261 Freeport Blvd 21st St Sutterville Rd (N) Arterial - Moderate Access Control 4 14,825 A 262 Freeport Blvd Broadway 21st St Major Collector 2 6,728 A 263 Land Park Dr Vallejo Way 13th Ave (S) Major Collector 2 10,552 C 264 Land Park Dr 13th Ave (S) Sutterville Rd Major Collector 2 7,848 A 265 Riverside Blvd 7th Ave Sutterville Rd Major Collector 2 10,198 C 266 Riverside Blvd 2nd Ave 7th Ave Major Collector 2 10,675 C 267 24th St Donner Way Sutterville Rd Major Collector 2 541 A 268 Sutterville Rd Freeport Blvd Sutterville Bypass Arterial - Moderate Access Control 4 27,246 C 269 5th St Broadway Vallejo Way Minor Collector 2 6,764 C 270 Broadway 5th St Riverside Blvd Arterial - Moderate Access Control 2 11,981 B 271 Elder Creek Rd Florin Perkins Rd S Watt Ave Arterial - Moderate Access Control 2 13,118 C 272 Richards Blvd N 7th St N 12th St Arterial - Moderate Access Control 4 23,324 B 273 12th St Richards Blvd D St Arterial - One Way Moderate Access Control 4 19,549 A 274 16th St Richards Blvd I St Arterial - One Way Moderate Access Control 4 24,175 B 275 N 7th St B St F St Arterial - Low Access Control 2 10,095 B 276 Florin Rd I-5 Freeport Blvd Arterial - Moderate Access Control 4 31,565 D 277 Cosumnes River Blvd Center Pkwy SR-99 Arterial - High Access Control 6 54,422 E 278 Garden Hwy Orchard Ln Gateway Oaks Dr Arterial - High Access Control 2 4,464 A 279 J St 7th St 10th St Arterial - One Way Low Access Control 3 15,710 F 280 J St 10th St 16th St Arterial - One Way Low Access Control 3 18,070 F ID Name From To Lanes Volume LOS
Segment
Functional Classification
Existing (2019)
281 P St 16th St 9th St Arterial - One Way Low Access Control 2 7,378 A 282 P St 9th St 2nd St Arterial - One Way Low Access Control 3 12,493 D 283 Franklin Blvd 5th Ave Sutterville Rd Arterial - Low Access Control 2 9,388 B 284 J St/Fair Oaks Blvd H St Howe Ave Arterial - Moderate Access Control 4 41,226 F 285 Folsom Blvd Jackson Hwy S Watt Ave Arterial - Moderate Access Control 4 18,387 A 286 Riverside Blvd/43rd Ave Florin Rd Gloria Dr Arterial - Moderate Access Control 4 21,980 B 287 Freeport Blvd Fruitridge Rd Florin Rd Arterial - High Access Control 4 20,607 A 288 Garden Hwy I-5 Truxel Rd Arterial - High Access Control 2 20,787 F 289 Garden Hwy Truxel Rd Northgate Blvd Arterial - High Access Control 2 23,149 F 290 Norwood Ave I-80 Silver Eagle Rd Arterial - Moderate Access Control 4 28,290 C Note:  Due to the level of detail contained in the General Plan level of service analysis, the number of lanes may differ from the above values for portions of select roadway segments.

Field verification may be required to determine existing number of roadway lanes.

Source: Fehr & Peers, 2019
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APPENDIX B:

Cultural Resources
JUNE 2013 6.3-1 GENERAL PLAN TECHNICAL BACKGROUND REPORT P:\Projects\Sacramento GP-MEIR\04_Reports\01_Background Report\05_Public Review Draft\Appendix\SacGP_BR-Appendix B _Cultural Resources_FORMATTED.docx

6.3 CULTURAL RESOURCES: APPENDIX
 HISTORIC CONTEXTS – SUMMARY
In support of the 2035 Sacramento General Plan Update, context statements were prepared for the following four topics, which represent important themes in the history of Sacramento:
 Agricultural Industry;
 State Government;
 Railroads; and,
 World War II, Transportation, and Redevelopment.

The themed historic context statements present an overview of Sacramento’s history with a specific emphasis on patterns that contributed to the City’s physical development. The purpose of the statements is to support the identification and evaluation of historic properties within the city.

It is important to note that topics and events described within the themed context statements may be described or covered in more than one theme because the themes are very closely interrelated. The context statements, therefore, include references to other themes that may cover a topic in greater depth.

While it was possible to cover quite a bit of Sacramento’s history and development through these themed contexts, they in no way represent an exhaustive evaluation of the context.

Subcontexts within each will also require additional research and evaluation. Nor do these contexts represent the entire history of the City and its development; rather, these context statements serve as an umbrella document under which more subcontexts and other detailed project-level research and review may occur. Additionally, the four contexts are somewhat focused on the central core of the city. Additional research is required to better contextualize the development of Sacramento outside the central city.

Sources
The majority of the research in these contexts is based on secondary sources.

Local repositories used for primary source research include the Center for Sacramento History for sources informing all aspects of this context and the California State Library for records related to redevelopment of the Capitol area. Some of the maps, images, and documents from the Center for Sacramento History—especially those pertaining to agriculture and transportation—are available online at http://sacramentohistory.org/.

The themed context statements also include a number of current and historic images of Sacramento. Many of the historic images were gathered from secondary sources, which are cited in the image caption. The inclusion of these historic images is intended to be consistent with the “fair use” policies of the U.S. Copyright Office, which states that reproductions used for “criticism, comment, news reporting, teaching (including multiple copies for classroom use), scholarship, or research, is not an infringement of copyright.”1 It is also worth noting that unless
specific measures have been taken to renew image copyrights, all published works made prior

1 United States Copyright Office, “Reproduction of Copyrighted Works by Educators and Librarians,” rev. (Washington, DC: U.S. Copyright Office – Library of Congress, 2009).

ENVIRONMENTAL RESOURCES

GENERAL PLAN TECHNICAL BACKGROUND REPORT 6.3-2 CITY OF SACRAMENTO to 1923 are now in the public domain.2 This report has been prepared expressly as a scholarly research document, and the inclusion of these images is needed for illustrating historic events and development patterns for which few, if any, alternative images are available.

Significance and Registration Requirements
Historic context statements require the identification of attributes, historical associations, and levels of integrity that are necessary to list members of property types in the National Register of Historic Places, the California Register of Historical Resources, or the Sacramento Register of Historic & Cultural Resources. In all Registers – local, state and national, particularly in the local and national registers – generally the 50-year “base line” or threshold age of the property must be met to consider its significance. Properties less than 50 years old exhibiting exceptional significance may be considered for their eligibility. The National Register can list properties that are significant at the local, state/region, or national level. National Historic Landmarks are properties with the highest significance to the nation. They must be of “exceptional value in representing or illustrating an important theme in the history of the nation.”3 Significance
There are four criteria under which a structure, site, building, district, or object can be determined eligible for listing in the National Register. These four criteria are:

Criterion A (Event): Properties associated with events that have made a significant contribution to the broad patterns of our history;
Criterion B (Person): Properties associated with lives of persons significant in our past; Criterion C (Design/Construction): Properties that embody the distinctive characteristics of a type, period, or method of construction, or that represent the work of a master, or that possess high artistic values, or that represent a significant distinguishable entity whose components lack individual distinction; and
Criterion D (Information Potential): Properties that have yielded, or may be likely to yield, information important in prehistory or history.

Similarly, there are four criteria under which a structure, site, building, district, or object can be determined eligible for listing in the California Register. These four criteria are:

Criterion 1 (Events): Resources that are associated with events that have made a significant contribution to the broad patterns of local or regional history, or the cultural heritage of California or the United States.

Criterion 2 (Persons): Resources that are associated with the lives of persons important to local, California, or national history.

2 Peter B. Hirtle, “Copyright Term and the Public Domain in the United States as of January 1,” Cornell Copyright Information Center (2011), accessed 1 September 2011,
http://copyright.cornell.edu/resources/docs/copyrightterm.pdf. 3 National Park Service, National Register Bulletin 15: How to Apply the National Register Criteria for Evaluation (1997), 10.

CULTURAL RESOURCES: APPENDIX

CITY OF SACRAMENTO 6.3-3 GENERAL PLAN TECHNICAL BACKGROUND REPORT

Criterion 3 (Architecture): Resources that embody the distinctive characteristics of a type, period, region, or method of construction, or represent the work of a master, or possess high artistic values.

Criterion 4 (Information Potential): Resources or sites that have yielded or have the potential to yield information important to the prehistory or history of the local area, California, or the nation.

Lastly, there are six criteria under which a structure, site, building, district or object can be determined eligible for listing in the Sacramento Register. These criteria are:
i. (Events) It is associated with events that have made a significant contribution to the broad patterns of the history of the city, the region, the state or the nation; ii. (Persons) It is associated with the lives of persons significant in the city’s past; iii. (Architecture) It embodies the distinctive characteristics of a type, period or method of construction;
iv. (typically Architecture) It represents the work of an important creative individual or master; v. (typically Architecture) It possesses high artistic value; or, vi. (Information Potential) It has yielded, or may be likely to yield, information important in the prehistory or history of the city, the region, the state or the nation.

Integrity
Once a resource has been identified as being potentially eligible for listing in any of these Registers, its historic integrity must be evaluated. The National Register recognizes seven aspects or qualities that, in various combinations, define integrity. These aspects are: location, design, setting, materials, workmanship, feeling and association. In order to be eligible for listing, these aspects must closely relate to the resource’s significance and generally must be intact. These aspects are defined as follows:
 Location is the place where the historic property was constructed.  Design is the combination of elements that create the form, plans, space, structure and style of the property.
 Setting addresses the physical environment of the historic property inclusive of the landscape and spatial relationships of the building(s).
 Materials refer to the physical elements that were combined or deposited during a particular period of time and in a particular pattern of configuration to form the historic property.  Workmanship is the physical evidence of the crafts of a particular culture or people during any given period in history.
 Feeling is the property’s expression of the aesthetic or historic sense of a particular period of time.
 Association is the direct link between an important historic event or person and a historic property.

ENVIRONMENTAL RESOURCES

GENERAL PLAN TECHNICAL BACKGROUND REPORT 6.3-4 CITY OF SACRAMENTO The process of determining integrity is similar for the Sacramento, California and the National Registers, although there is a critical distinction between the California and National registers, and that is the degree of integrity that a property can retain and still be considered eligible for listing. According to the California Office of Historic Preservation:

It is possible that historical resources may not retain sufficient integrity to meet the criteria for listing in the National Register, but they may still be eligible for listing in the California Register.

A resource that has lost its historic character or appearance may still have sufficient integrity for the California Register if it maintains the potential to yield significant or historical information or specific data.

For the Sacramento Register, integrity is to be judged with reference to the particular criterion or criteria for which the property is eligible, and the property would need to retain integrity of location, design, setting, materials, workmanship and association.  AGRICULTURAL CONTEXT STATEMENT
The Sacramento Valley has long been identified by the wealth of its natural resources and as a major agricultural production region in the United States. The California Department of Transportation’s “Historical Context and Archaeological Research Design for Agricultural Properties in California” describes the region geographically and agriculturally:

The Sacramento Valley is part of the Great Central Valley, which is approximately 500 miles long and forty miles wide, and lies betwixt the Coast Ranges and the Sierra Nevada. The Central Valley “is generally regarded as the richest agricultural valley in the world.”4 The principal counties in the Sacramento Valley include Glenn, portions of Butte, Colusa, Yolo, Solano, Yuba, Sutter, and Sacramento… Cooler winters, higher rainfall, and less productive soils characterize the Sacramento Valley in comparison to the San Joaquin Valley, which lies immediately to the south beginning in San Joaquin County.

The Sacramento Valley, historically, served as the center of wheat production in the state…California ranked second in the nation in wheat production by 1889. However, barley and alfalfa, much of it grown in the Sacramento Valley, surpassed wheat by 1900.5
…Reclamation activities along the Sacramento River resulted in the construction of huge levees to create rich, productive cropland. Wheat, corn, alfalfa, dry beans, sunflowers, safflower, rice, almonds, peaches, pears, prunes, and walnuts are important crops grown in the valley. Rice, a major export crop, first grew in the Sacramento Valley in 1906, and local varieties were soon developed.6
Sacramento served as the commercial hub for this fertile valley. While produce was cultivated primarily in the territories surrounding the City of Sacramento, Sacramento itself developed into an important center of trade, government, and industry, and it was in the city that produce was prepared, packaged, and shipped to locations near and far.

4 Warren E. Johnston, “Cross Sections of a Diverse Agriculture: Profiles of California’s Agricultural Production Regions and Principal Commodities,” in California Agriculture Issues and Challenges, edited by Jerry Siebert (Berkeley: Division of Agriculture and Natural Resources, University of California, Giannini Foundation, 1997), 72.
5 Warren P. Tufts, “The Rich Pattern of California Crops,” in California Agriculture, ed. Claude B. Hutchinson (Berkeley: University of California, 1946), 114.
6 Tufts, “The Rich Pattern of California Crops,” 117; California Department of Transportation, “A Historical Context and Archaeological Research Design for Agricultural Properties in California,” 27-8.

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CITY OF SACRAMENTO 6.3-5 GENERAL PLAN TECHNICAL BACKGROUND REPORT

Themes related to the history of agriculture in Sacramento include the changing land uses and agricultural production methods which reflected the demand for Sacramento Valley produce from the nation and beyond; the establishment of numerous manufacturing operations which stimulated the economy and increased the city’s population; and the influx of laborers who came to Sacramento to work on the region’s farms and in the city’s many manufacturing plants, and established ethnic communities.

Early Agricultural Activities
In 1839, Swiss immigrant John Sutter arrived in the coastal port of Monterey where he approached the Mexican Governor of California, Juan Bautista Alvarado, about starting a settlement in the Sacramento River Valley. The idea appealed to Alvarado, who felt that settling the area could help quell the ongoing problem with horse rustling by the Native Americans.7

If Sutter became a Mexican citizen, Alvarado agreed to allow him to be eligible to receive a grant of land. Using both European and Native American laborers, Sutter soon built an adobe house, while also commencing work on the construction of a fort located about a mile from the American River. In 1840, Sutter became a Mexican citizen and received a grant for 48,827 acres of land–more than 75 square miles. It stretched from an area about four miles south of Sutter’s Fort (establishing the general route that Sutterville Road follows today) and north to what is today Sutter Buttes.8 Sutter called his settlement “New Helvetia” (or New Switzerland) in honor of his homeland.

Initially, Sutter experienced a tense relationship with the local Native Americans, but in time he learned to use a combination of trade goods, diplomacy, and force to exert tight control over the Native population. With their labor, New Helvetia grew to include vast herds of cattle and horses by the mid-1840s. Sutter also recognized the potential of the region for agriculture, and used water from the American River to irrigate fields of wheat tended by Native ranch hands.9 In this
sense, Sutter pioneered techniques as both a rancher and farmer that would eventually see the Central Valley become one of the most productive agricultural areas in the world. As the settlement prospered, it also became a way station for American immigrants arriving overland through the Sierra Nevada. Though the number of new arrivals was initially modest, they grew exponentially.

Discovery of gold at Sutter’s Mill in 1848 created a demand for goods the area had not seen before. The Sacramento Valley Railroad, completed in 1856, connected Sacramento to Folsom.

Goods were transported to Folsom and then packed up to the mines of the Sierra Nevada.10 (See Railroad Context). The marriage of the Sacramento’s transportation access, agricultural richness, and available consumers led to a growing canning industry in Sacramento. The transportation logistics, and, to a lesser extent, the economic effects of the Nevada gold and silver rushes, are described in an early 20th-century history of the canning industry:
…the great discoveries in Nevada, the opening of the mines, and the development of the Com-stock [sic] lode in Virginia City, Nevada, resulted in active demand for all California

7 Albert L. Hurtado, John Sutter: A Life on the North American Frontier (Norman: University of Oklahoma Press, 2006), 55.
8 Mark Eifler, Gold Rush Capitalists: Greed and Growth in Sacramento (Albuquerque: University of New Mexico Press, 2002) 151.
9 Hurtado, John Sutter, 157.
10 Kenneth N. Owens, “River City: Sacramento’s Gold Rush Birth and Transfiguration,” in River City and Valley Life:

An Environmental History of the Sacramento Region, ed. Christopher J. Castaneda and Lee M.A. Simpson (Pittsburgh, PA: University of Pittsburg Press, 2013), 47

ENVIRONMENTAL RESOURCES

GENERAL PLAN TECHNICAL BACKGROUND REPORT 6.3-6 CITY OF SACRAMENTO canned foods packed [canned goods]. In those days, before railroad communications were opened, the goods had to be taken by boat from San Francisco via the Sacramento River to Sacramento, and from there carried by railroad as far as Folsom, then by pack mules and teams, across the Geiger Pass to Nevada points, including the Comstock… Nevada produced nothing, and could not supply any of its wants from the East, as the railroad was not yet open, so these sections were entirely dependent upon San Francisco for their food supplies.11

The goods were offloaded from river boats at the embarcadero on the Sacramento River to nearby rail lines transportation, generally along Front Street which ran parallel to the river (See Figure 1).

Figure 1. Selection from Map of American Basin to Accompany Report on Its Reclamation, 1907 [Center for Sacramento History, Natomas Company Collection, 1981-037-4825]. Although this map dates to 1907, the relation of the rail lines, the Sacramento and American Rivers, and the town is essentially the same as when the system was completed in 1869.

The Flood of 1861-1862 was essentially two floods. The first struck in December of 1861, and flooding continued into 1862. A large region, including California, Oregon, and Nevada, were

11 Isidor Jacobs, “The Rise and Progress of the Canning Industry in California,” in Arthur I. Judge, ed., A History of the Canning Industry by Its Most Prominent Men (Baltimore, MD: The Canning Trade, 1914), 31.

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CITY OF SACRAMENTO 6.3-7 GENERAL PLAN TECHNICAL BACKGROUND REPORT

affected by the floods. The impact on California’s economy was most dire. The state suffered the destruction of nearly a quarter of its real estate – the primary source of state income, drowning hundreds of thousands of cattle, sheep, and lambs. This disaster and its toll on livestock ultimately helped shift the state’s economy from mining and ranching to farming.12 Both as a flood control measure and to reclaim agricultural land, between 1860 and 1880, thousands of predominantly Chinese laborers constructed levees in the delta, rendering the swampland suitable for agriculture. Charters were granted to railroad companies, granting them waterfront land with the understanding that the benefitting railroad companies would construct new levees or improve those already in existence.13 Following the construction of the levees, many Chinese remained in the area, working in canneries or as sharecroppers while some were able to purchase their own small plots of land. By 1970, Chinese made up 45 percent of all Sacramento County farm labor. Between 1879 and 1882, however, severe anti-Chinese laws resulted in discrimination and violence against Chinese immigrants. During a national economic depression in the 1890s, Chinese began to be “shipped out” en masse, most notably from the Sacramento and San Joaquin River valleys despite having been a critical and inexpensive labor force in the construction of railroads, agricultural levees, and as farm hands.14 The first Transcontinental Railroad was completed in 1869, when Union Pacific and Central Pacific lines met at Promontory Point, outside of Salt Lake City, Utah. The line’s first western terminus was in Sacramento at Front Street and K Street, where the eastward construction had begun in 1862. Sacramento had been increasing in prominence, influence, and population, and became a major hub for transportation in California and the West Coast. During the 1870s, California’s agriculture industry shifted from primarily grain cultivation to the production of fruit and hops.15 The demand for Sacramento County’s produce from distant regions increased with its accessibility to refrigerated railroad cars, which were invented in the 1860s and were being used in Sacramento by 1886 (see Railroads Context).

Hydraulic mining in the Sierra Nevada introduced an assortment of problems to the larger Sacramento Valley region, including floods caused partly by building deposits of mining debris, which was filling streams and riverbeds, impeding river navigation and the delivery of water downstream. In 1884, hydraulic mining was prohibited, and it was determined that such operations “must give way to the paramount public interest in navigation and commerce and to the burgeoning commercial and agricultural development in the Sacramento Valley.”16 The creation of public irrigation districts in California was authorized by the Wright Act of 1887. This profoundly affected the Sacramento Valley, and irrigation developments continued into the twentieth century.

In the coming decades, Sacramento County earned a reputation as one of the most fertile regions in the United States. The State Agricultural Society described Sacramento’s strategic position as the commercial hub for its fertile hinterlands:

12 John D. Newbold, “The Great California Flood of 1861-1862,” San Joaquin Historian 5, no. 4 (Winter 1991), 2-3. 13 Richard Orsi, “Railroads and the Urban Environment: Sacramento’s Story,” in River City and Valley Life: An Environmental History of the Sacramento Region, ed. Christopher J. Castaneda and Lee M.A. Simpson (Pittsburgh, PA: University of Pittsburg Press, 2013), 81-6.
14 “Sacramento Delta Blues: Chinese Workers and the Building of the California Levees, 1860-1880,” Revolutionary Worker Online, 1997, accessed 16 February 2011, http://www.revcom.us/a/firstvol/890-899/894/chines.htm. 15 James Gerber and Lei Guang, Agriculture and Rural Connections to the Pacific, 1500-1900 (Burlington, VT:

Ashgate Publishing Co., 2006), 250.
16 Ellen Hanak, Managing California’s Water: From Conflict to Reconciliation (San Francisco: Public Policy Institute of California, 2011), 27.

ENVIRONMENTAL RESOURCES

GENERAL PLAN TECHNICAL BACKGROUND REPORT 6.3-8 CITY OF SACRAMENTO Sacramento City, by reason of natural advantages, geographical relations to various producing sections, and admirable transportation facilities, deservedly bears the reputation of being the largest fruit and vegetable shipping point in the State. It is the recognized outlet for the products of Northern California. Within the borders of Sacramento County every character and variety of agricultural, horticultural, and viticultural products thrive, and in abundance; their excellence commands universal and unlimited demand from many portions of the civilized world.17 In 1901, the City of Sacramento was publicized as “the center and metropolis of the richest portion of the State, the heart of a vast railroad system, the point from which steamers pass to the north and to the south, and with unlimited water and electrical power at her very doors, [presenting] advantages in manufactures equaled by no other city on the coast.”18 Some of the biggest manufacturing plants in Sacramento packed, canned, and bottled food and drink made from farm products imported from fertile lands along the Sacramento River, and then shipped elsewhere by rail or river. Including the maufactures of packing crates and cans, the preparation and exportation of non-perishables was one of Sacramento’s most lucrative businesses leading up to the Second World War.

Uses of the Land
Subcontexts/Themes Not Included in This Evaluation
 Broad Patterns of Development
Incredibly important to Sacramento’s history is the city’s transition from farm land into developed land. The history of this pattern of development, along with related property types, features, and characteristics, needs further research, evaluation, and documentation.

According to a map published in 1894, the primary uses of the soil in Sacramento County were the cultivation of grains (including wheat and barley) and grazing land, with approximately 140,000 acres devoted to each. Nearly 200,000 acres were reserved for farming fruits, nuts, vegetables, legumes, and hay. 80,000 acres along the Sacramento River found to the north and south of the city remained unreclaimed swampland (see Figures 2 and 3). The rest of the land along the river, between the city of Sacramento and Sherman Island—located at the confluence of the Sacramento and San Joaquin Rivers—housed orchards. Important commercial crops grown around the turn of the twentieth century included oranges, lemons, pomegranates, olives, persimmons, various figs, almonds, walnuts, peanuts, corn, various beans, potatoes, licorice, sugar beets, wheat, barley, oats, peas, tomatoes, asparagus, cauliflower, radishes, celery, and lettuce. The County’s bountiful crops were fed by an “unlimited and inexhaustible” supply of water.19

17 Winfield Davis, “Sacramento County,” in Transactions of the California State Agricultural Society during the Year 1901(Sacramento: Office of State Printing, 1903), 326.
18 Davis, “Sacramento County,” 334.
19 Davis, “Sacramento County,” 322-325.

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CITY OF SACRAMENTO 6.3-9 GENERAL PLAN TECHNICAL BACKGROUND REPORT

Figure 2. Selection and key from Map of Sacramento County California Showing Uses of the Soil, 1894 (James McClatchy and Company, 1894). [Center for Sacramento History, Ed Beach Collection, 1985/152/284].

ENVIRONMENTAL RESOURCES

GENERAL PLAN TECHNICAL BACKGROUND REPORT 6.3-10 CITY OF SACRAMENTO Figure 3. Source: Map of Sacramento County California Showing Uses of the Soil, 1894.

These uses of land are reflected in the prevailing transportations modes used, and in the variety and concentrations of agriculture- and horticulture-related industries located in the City of Sacramento around the turn of the twentieth century. The 1895 Sanborn-Perris Map Company fire insurance map shows eight nurseries and conservatories, several of which were clustered on or around 3rd and 11th Streets. Other chief businesses, including flour mills, dairies, and stock yards, were primarily located either along the riverfront, along the rail lines, or what were then the outskirts of the city. The Pioneer Mills Sperry Flour Company was located on First Street wharf at the Sacramento River, the Sacramento Flour Mills was located on Front Street between Capitol Avenue and L, and the Phoenix Milling Company Flour Mill stood at J and 13th Streets. Two dairies were located at T and 22nd Streets near the R Street rail corridor, and the Milk Depot stood at D and 16th Streets. Finally, a large Southern Pacific stock yard was located at C and 15th Streets, and the large Mohr and Yoerk Stockyard and slaughterhouse stood 2 miles southeast of the post of the post office, which in 1895 was located at 7th and K Streets.

The 1894 soil use map also illustrates “the frontage of the Sacramento River [as] an almost continuous line of orchards.”20 This river orchard belt was extremely productive. Orchard owners shipped their produce on the levee adjacent to their orchard. A Sacramento Bee publication about Sacramento’s fruit producers described the process of moving produce from the farm to the city:

A shed stands close to the water’s edge in each of the orchards. Here the fruit is packed and shipped on steamboats which ply daily between Sacramento and San Francisco during the entire season. The advantage of such an arrangement, not only in the saving of expense but also in avoiding the jolting of the fruit in wagons on roads, is obvious to even the least reflecting persons.21
The Pocket/Greenhaven
Along the orchard belt was a district known today as the Pocket or Greenhaven Areas of Sacramento, located near the current southwestern city limits and so named because of its

20 Davis, “Sacramento County,” 322-5, 332.
21 Where California Fruits Grow: Resources of Sacramento County, A Souvenir of the Bee 2nd ed. (Sacramento: H.S.

Crocker Co., 1895), 43.

Land Use Acres
Grazing 140,000
Uncreclaimed/Swampland 80,000
Wheat 80,000
Corn 75,000
Hay 70,000
Barley 60,000
Vegetables 50,000
Potatoes 20,000
Orchard 20,000
Vineyard 10,000
Alfalfa 10,000
Beans 7,000
Hops 5,000
Oats 1,000
Berries 1,000
CULTURAL RESOURCES: APPENDIX

CITY OF SACRAMENTO 6.3-11 GENERAL PLAN TECHNICAL BACKGROUND REPORT

location in a large bend—or pocket—of the Sacramento River. The area was settled in the 1850s by Portuguese farmers; sizable Portuguese and Japanese populations developed there.

Initially, settlers constructed shoestring levees to protect their property. A history of California’s riparian systems describes the early shoestring levees of the Sacramento Delta as “hand-built from blocks of sod from island interiors… low earthen mounds, resembling natural alluvial levees, and afforded little protection from flooding.”22 By about 1895, a formal reclamation system had been adopted for the area and some settlers were employed building levees along the Sacramento River. Produce was loaded onto steamboats, typically from the Freeport Ferry located about four miles south along the levee, and many farmers delivered their fruits, vegetables, nuts, eggs, and dairy products to merchants in the city.23

In addition to numerous farms and ranches, several dairies, alfalfa fields, and a brickyard of the Sacramento Brick Company (situated on Riverside Road, now Riverside Boulevard) were also located in the Pocket. Homesteads typically included two-story residences with staircases and main entries on the upper level so that the occupants could escape periodic, devastating floods.24 The area’s agricultural character practically disappeared when the Pocket was annexed by the City of Sacramento in 1959 and developed into a suburban riverfront community (see Post-World War II, Transportation, and Redevelopment Context).25 Although the land has been mostly subdivided and developed, several historic buildings once associated with the agricultural identity of the Pocket remain, including enclaves of residential buildings located on Park Riviera Way and Pocket Road.26
Figure 4. A typical homestead, this one belonging to the Machado family, ca. 1915. Outbuildings can be seen in the left background. Source: Images of America: Sacramento Greenhaven/Pocket Area, 54. Courtesy of the Portuguese Historical and Cultural Society.

22 Nona B. Dennis et al., “Riparian Surrogates in the Sacramento/San Joaquin Delta and Their Habitat Values,” in California Riparian Systems: Ecology, Conservation, and Productive Management, ed. Richard E. Warner and Kathleen M. Hendrix (Berkeley: University of California Press, 1984), 570. 23 Where California Fruits Grow, 29, 43.
24 Carol Ann Gregory, Images of America: Sacramento’s Greenhaven/Pocket Area (San Francisco: Arcadia Publishing, 2005), 37, 51.
25 Gregory, Sacramento’s Greenhaven/Pocket Area, 7-8.
26 Gregory, Sacramento’s Greenhaven/Pocket Area, 51-66, 99-127.

ENVIRONMENTAL RESOURCES

GENERAL PLAN TECHNICAL BACKGROUND REPORT 6.3-12 CITY OF SACRAMENTO Reclamation Efforts
Between 1850 and 1893, Sacramento experienced ten major floods. Debris from hydraulic mining in the Sierra Nevada resulted in rising riverbeds and more severe flooding. Floods in 1907 and 1909 helped build momentum behind a public works project to stop the flooding. A report by U.S. Army Corps of Engineers Captain Thomas H. Jackson titled “Reports on the Control of Floods in the River Systems of the Sacramento Valley and the Adjacent San Joaquin Valley, California,” (also known as the Jackson Report) recommended a series of bypasses, levees, and weirs to channel water from North of Colusa to two hundred miles South to Collinsville. This report became the basis for reclamation efforts in the early 20th century. In 1911 the state passed the Flood Control Act, which adopted the Jackson Report and granted the State Reclamation Board the authority to build levees on the Sacramento River and its tributaries.27

The Natoma Water and Mining Company, developed in 1851 by Amos P. Catlin and A.T.

Arrowsmith, led reclamation efforts which resulted in the agricultural development of what is now the Natomas area. The company’s mastery of the water and mining business made “the Natoma Water and Mining Company…one of the most profitable investments in California.”28 Through reclamation efforts, the area was transformed from swampland (See Figure 2) into fertile and productive agricultural land. Reclamation District 1000 was established in 1911. It encompassed over 32,000 acres in Sacramento County and over 21,000 acres in Sutter County. The district was bounded by the Sacramento River to the west, the Cross Canal to the north, Pleasant Grove Creek and Natomas East Main Drainage Canal to the east, and the American and Sacramento Rivers to the south. Natomas Consolidated of California (formerly The Natoma Water and Mining Company) owned 85% of the land that became Reclamation District 1000. The company performed the work of reclamation between 1912 and 1917— repairing, strengthening, and raising levees. This system stands largely intact, and still holds back the floodwaters of the Sacramento River.29 The levees were designed to keep water out of the district in canals designed to collect water until it could be pumped out. Pumping plants pumped the water into the Sacramento River. Once the work of reclamation was complete, an irrigation system was established within the district. With this system of levees and irrigated waterworks in place, Reclamations Districts 1000 and 1001 within the Natomas Consolidated land were primed for agricultural development. The company subdivided its 43,532 acres into 40-acre tracts with irrigation, drainage, and roads for each. The area was successfully marketed as a rich area for farmers. Crops included beans, sugar beets, rice, pumpkins, potatoes, melons, and alfalfa—which was used to support a growing dairy industry in the area. The agricultural nature of Natomas would be eroded by suburban development in the mid-twentieth century (see Post-World War II, Transportation, and Redevelopment Context).30 Farm and Agricultural Industry Workers
Subcontexts/Themes Not Included in This Evaluation
 Sacramento’s Farmsteads

27 Karen Wilson, A Century of Protecting Natomas: The History of Reclamation District 1000, 1911-2011 (Virginia Beach, VA: Donning Company Publishers, 2011), 9-14.
28 Todd Holmes, “Rivers of Gold, Valley of Conquest: The Business of Levees and Dams in the Capital City,” in River City and Valley Life: An Environmental History of the Sacramento Region, Christopher J. Castaneda and Lee M.A.

Simpson eds. (Pittsburgh, PA: University of Pittsburg Press, 2013), 124. 29 Wilson, History of Reclamation District 1000, 7.
30 Wilson, History of Reclamation District 1000, 15-21, 60-65; Natomas News Vol. 1. nos. 3-4 (Sacramento: Natomas Consolidated of California, 1911).

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CITY OF SACRAMENTO 6.3-13 GENERAL PLAN TECHNICAL BACKGROUND REPORT

The sub-context of Sacramento’s farm owners who lived on their land has not been thoroughly evaluated in this context statement. The history of Sacramento’s small farm owners, as well as related property types, features, and characteristics, needs further research, evaluation, and documentation.
 Agricultural Industry Worker Housing
The housing of agricultural workers, including those who went out to the fields each day and those who worked in canneries and factories in the city, have not been thoroughly evaluated in this context statement, beyond the Labor Market area discussed below.

Further research, evaluation, and documentation is required.

Itinerant and Immigrant Labor in Sacramento
The discovery of gold by James Marshall at Sutter’s Mill on the South Fork of the American river in Sacramento’s nearby foothills triggered mass migration to the Sacramento region. News of gold attracted immigrants from Hawaii, Mexico, Chile, Peru, Australia, China, France, Germany and other diverse countries. These groups, in addition to Native Americans and people from across the United States, comprised the workforce of the California Gold Rush.31 These migrants not only worked in the gold fields, they also worked and lived in Gold Rush towns like Sacramento. Sacramento, strategically located at the confluence of the American and Sacramento Rivers and served by the railroad, served as a regional hub for transportation and shipping. Goods and people were transported from San Francisco to the gold fields of the Sierra Nevada via the Sacramento River (see Railroad Context). 32 Merchants, service workers, and
businesspeople stationed themselves in Sacramento to capitalize on the large population of miners dependent on the town’s services. Not all who came to the Sacramento area during the Gold Rush stayed. Those that did usually worked in industries supported by mining.33 By the 1860s, grain and lumber mills and canneries were established in Sacramento. Immigrant laborers were used throughout agriculture and its related industries in the Sacramento Valley— picking and transporting crops to market, canning and packing, shipping, and the railroad.34 Laborers, generally travelling to work on foot, settled near the canneries, factories, and rail yards that provided them with jobs. Tenements, hotels, and other lodging lined streets near the waterfront and rail lines where these industries were located (See Figure 5).

31 Sucheng Chan, “A People of Exceptional Character: Ethnic Diversity, Nativism, and Racism in the California Gold Rush,” in Rooted in Barbarous Soil: People, Culture, and Community in Gold Rush California edited by Kevin Starr and Richard J. Orsi (Berkeley: University of California Press, 2000), 52-6. 32 Robert Phelps, “’All Hands Have Gone Downtown’: Urban Places in Gold Rush California,” in Rooted in Barbarous Soil: People, Culture, and Community in Gold Rush California edited by Kevin Starr and Richard J. Orsi (Berkeley:

University of California Press, 2000), 122-23.
33 Ken Owns, “Begun by Gold: Sacramento and the Gold Rush Legacy after 150 Years,” in Riches for All: The California Gold Rush and the World ed. Ken Owens (Lincoln: University of Nebraska Press, 2002), 334-35. 34 Cheryl Anne Stapp, Sacramento Chronicles: A Golden Past (Charleston, SC: History Press, 2013), 22.

ENVIRONMENTAL RESOURCES

GENERAL PLAN TECHNICAL BACKGROUND REPORT 6.3-14 CITY OF SACRAMENTO Figure 5. Insurance Maps: Sacramento, California (Sanborn-Perris Map Co., 1895). This selection from an 1895 Sanborn map shows the block between J and I Streets, and 3rd and 2nd Streets. Along 3rd and I Streets are a series of lodgings and tenements, primarily for the Chinese. The people living there most likely worked at the nearby rail yards, canning facilities, and in other auxiliary industries. The Southern Pacific rail yard, two nurseries, multiple grocers, and a fruit packing facility all resided within two blocks of these tenements.

Immigrants who did stay in Sacramento often remained engaged with their ethnic communities.

Sacramento had a strong contingent of Irish settlers, many from the eastern United States. The center of Irish life in Sacramento in the 19th century was St. Rose of Lima Church at 7th and K Streets. Germans participated in a social club called the Turn Verein, which gathered in different locations referred to as Turner Hall throughout Sacramento. Sacramento’s Turn Verein found a permanent home in 1925 at 3349 J Street in 1925—the building continues to be used for its original purpose. Sacramento’s early African-American population tended to settle near the African Methodist Episcopal Church. Chinese immigrants, pushed out of the mines by a foreign miners tax, provided services for Sacramento’s growing urban core. They settled along I Street, establishing restaurants, gambling houses, and other businesses—especially laundries.35

Beginning around 1910, California saw a large influx of Mexican immigrants due to the Mexican Revolution. Worsening economic conditions in Mexico and a United States’ labor shortage caused by World War I contributed to continuing immigration.36 Mexican immigrants arrived in

35 Steven M. Avella, Sacramento: Indomitable City (San Francisco: Arcadia Publishing, 2003), 43-5. 36 Guadalupe Salinas and Isaias D. Torres, “The Undocumented Mexican Alien: A Legal, Social, and Economic Analysis,” in Latino Employment, Labor Organizations, and Immigration, ed. Antoinette Sedillo Lopez (Routledge, CULTURAL RESOURCES: APPENDIX

CITY OF SACRAMENTO 6.3-15 GENERAL PLAN TECHNICAL BACKGROUND REPORT

Sacramento County to find work in the booming railroad and agriculture industries. Because of the proximity to the Southern Pacific rail yard and several major canneries, sizeable Mexican populations developed in the West End and Alkali Flat neighborhoods, and by the early 1940s, there were approximately 2,000 Latinos residing in Sacramento.37 At the onset of the Second World War, Congress recognized the shortage of American laborers and arranged for a sponsorship program of Mexican laborers with the Mexican government. It was known as the Bracero (Spanish for “strong arm”) Program. Two separate labor programs were initiated: a railroad program that operated from 1942 until 1945 and an agriculture program that was extended many times by supplemental legislation until 1964, though the agreements covered laborers until 1967.38 The total number of immigrant laborers steadily increased through the 1940s, when nearly half of all Sacramento cannery workers were from Mexico.39 By the end of the Bracero Program in 1964, millions of Mexicans had immigrated to the United States. The 1966 United Farm Workers march from Delano to Sacramento is one of the most significant events of the 20th century labor movement and thousands of Sacramentans took part. The march is significant to California’s and Sacramento’s immigrant labor history and will reach the 50-year threshold in 2016.

The Labor Market Area
The Sacramento riverfront was established as the property of the Central Pacific Railroad (later owned by the Southern Pacific Railroad) following the groundbreaking for the rail yard, shops, and depots in 1863, and the area of the city on the west end of K Street and along the embarcadero became populated by migrant workers hoping to find agricultural and factory labor, or employment at the nearby rail yards and shops (See Transportation Context).40 In the decades that followed, the residential and commercial area roughly bounded by the Sacramento River, 10th Street, Front to 6th Street, and from I Street and R Street to the M/N Alley, attracted thousands of itinerant laborers who followed seasonal jobs at farms located outside Sacramento as well as on the railroads and in the city’s proliferating factories. This neighborhood, known as Sacramento’s West End or Labor Market Area, was also home to numerous employment agencies that facilitated temporary hiring, homeless shelters, and other social services.41 The Labor Market was populated predominantly by single male workers, infirm men, and retirees who sought cheap accommodations in residential hotels or boarding houses.

Of the numerous buildings that lined the streets, most were on- and two-story frame dwellings and tenements. The Labor Market Area and much of its surrounding larger West End neighborhood was associated with poverty and crime. Various ethnic groups were concentrated there, including Chinese, Japanese, and Mexican communities—most of whom were prohibited from living or owning property elsewhere in the city.42 Many Sacramentans considered much of the West End “blighted,” and beginning in the 1940s, various redevelopment projects focused on the West End (see Post-World War II, Transportation and Redevelopment Context).

Today, the remaining buildings that supported the Labor Market are contained within what is now called Old Sacramento—which is bounded by the Sacramento River, I Street, Interstate 5, and Capitol Mall.

1995), 169-70.
37 City of Sacramento, Alkali Flat/Mansion Flats Strategic Neighborhood Action Plan (2005), 7, accessed 4 January 2013, http://www.cityofsacramento.org/dsd/planning/long-range/snaps/documents/Final_SNAP_08_30_05.pdf. 38 Armando Navarro, Mexicano Political Experience in Occupied Aztlan: Struggles and Change (Walnut Creek, CA:

Alta Mira Press, 2005), 375.
39 Avella, Sacramento: Indomitable City, 108.
40 William Burg, Sacramento’s K Street: Where Our City Was Born (Charleston, SC: The History Press, 2012), 125. 41 William Burg, “The Big Tomato,” Midtown Monthly, 11 March 2011, accessed 20 December 2010, http://www.midtownmonthly.net/life/the-big-tomato/.
42 Burg, Sacramento’s K Street, 126-27, 129.

ENVIRONMENTAL RESOURCES

GENERAL PLAN TECHNICAL BACKGROUND REPORT 6.3-16 CITY OF SACRAMENTO California State Agricultural Society and the California State Fair Soon after the Gold Rush, the California Agricultural Society was created by the state legislature, and the organization was permitted to host an annual gathering to exhibit livestock, manufacturing, and agriculture-related industry.43 In the years immediately following the inaugural California State Fair held in San Francisco in 1854, the annual fair and agricultural exposition of the California State Agricultural Society was held in Sacramento, San Jose, Stockton, and Marysville. It returned to Sacramento in 1861, when it became the fair’s permanent location.44
The state agricultural Society purchased a large plot of land bounded by B, H, 20th, and 23rd Streets for its fairgrounds and constructed the Union Park Racetrack. County exhibits were located at the more centrally-located grand Pavilion at 6th and M Streets. A new exhibition hall was constructed nine blocks to the west in Capitol Park, and this Agricultural Pavilion was in use from 1884 to 1905.45 The Racetrack, which hosted livestock events including horse races and later bicycle and automobile races, was considered the fastest and best track in the State, one that is a great favorite with horsemen ambitious to make a record for their stud.”46 It operated from 1861 until 1904, after which time the land was sold to the Park Realty Company, subdivided, and developed into the Boulevard Park neighborhood.47 In 1909, new consolidated state fairgrounds opened near the southeast corner of the city at Stockton Boulevard and 2nd Avenue, and the grounds were expanded in 1937 to include a livestock arena and racetrack grandstand. There was also a Hall of Flowers, a Counties Building, Halls of Industry and Agriculture, numerous livestock barns, and a carnival.48 The new fairgrounds were planned in accordance with the tenets of the City Beautiful Movement, and many of the exhibit buildings were beautifully designed and ornamented.49 The last state fair to be held at the Stockton Boulevard fairgrounds was in 1967, and the site was eventually redeveloped into the Sacramento Medical Center (now known as the UC Davis Medical Center).

Two state fair buildings survive near the northeast corner of Stockton and Broadway: Governors Hall (vacant in 2010) and the Exhibition Hall (now known as the Institute for Regenerative Cures).50 The Cal Expo site on the north side of the American River opened in 1968, and the fair has been held at this location since. Prior to the construction of Cal Expo, the site was part of an undeveloped tract of 1,000 acres. Cal Expo currently occupies 356 acres, and the 159th California State Fair was celebrated there in 2013.

Agricultural Industries in the City of Sacramento

43 California State Archives Staff, “Inventory of the California State Exposition and Fair Records” (Sacramento:

California Secretary of State, 2005), 3, accessed 21 December 2012, http://cdn.calisphere.org/data/13030/9g/tf4489n69g/files/tf4489n69g.pdf. 44 Thor Severson, Sacramento, an Illustrated History, 1839-1874: from Sutter’s Fort to Capital City (California Historical Society, 1977), 131.
45 Severson, Sacramento, an Illustrated History, 134.
46 Davis, “Sacramento County,” 332.
47 William Burg, “Midtown State Fair,” Midtown Monthly, 1 July 2010, accessed 8 January 2013, http://www.midtownmonthly.net/life/midtown-state-fair/. 48 Marty Relles, “Walking to the Old California State Fair,” Valley Community Newspapers, 19 May 2011, accessed 8 January 2013, http://www.valcomnews.com/?p=4108.
49 Burg, William. “Midtown State Fair.”
50 University of California, Davis, “UC Davis Sacramento Campus 2010 Long Range Development Plan,” 2010.

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CITY OF SACRAMENTO 6.3-17 GENERAL PLAN TECHNICAL BACKGROUND REPORT

Some of the largest agricultural manufacturing operations in the entire nation were located in Sacramento. In the 1920s, Sacramento had the largest and second largest canneries in the United States—Cal-Pack#11 and Libby McNeill & Libby.51 The canneries and packing industries played key roles in the city’s existence as a powerful industrial center and attractive labor market, profiled below. In addition to these, numerous other agriculture-related businesses and plants operated within the city, and the collective agricultural industries, often associated along rail lines, were a powerful force that shaped the development of Sacramento and the surrounding region.

Breweries
With an influx of German immigrants, a predominantly working-class male population, the rich soils of the Sacramento Delta, and access to wide-spread distribution, breweries became highly successful in Sacramento. Two New Hampshire-born brothers began experimenting with growing hops in the region beginning in 1857; previously brewers were dependent on hops shipped from the east coast. The cultivation of hops in California was made possible by the rapid expansion of local production of barley and hops:

Barley production rose from just under 10,000 bushels in 1850 to over 17.5 million bushels by 1890. Kilns were used to make malt from the barley, but that mostly took place at breweries and not farms. During the late 1850s most of the hops production in the United States was in New York, but by the late nineteenth century California’s Central Valley and the Northern California Coast had become important hops-growing regions… The first hops in California were planted in 1856, and by 1880 California had become a leader in the production of hops. By the early 1900s, however, hops growing in the state fell victim to the economics of competition from the Pacific Northwest… Steady demand drove the market through the late nineteenth and early twentieth century. Large-scale hops production in California largely ended during the 1960s.52 As hop and barley cultivation proved suitable for western alluvial soil, beer production became common throughout the Sacramento Valley. One obstacle brewers faced was the need for cold climates to produce cold-fermented lagers. Before artificial refrigeration was viable, producers would brew what came to be known as California common, or steam beer, but by the 1870s, as ice refrigeration became affordable, lagers appeared on the Sacramento market. In 1890, Herman Grau opened the Buffalo Brewing Company, which would become the largest brewery west of the Mississippi. Under prohibition, many breweries went out of business of began producing sodas, “soft beers,” and ice at the onset of Prohibition in 1920. Those that survived began producing beers again following the ratification of the 21st Amendment.

Flour Mills
As described above, the cultivation of grains—notably wheat—was the focus of many early farmers in the Sacramento Valley. In 1849, Sacramento already had two flour mills. Within five years, the city had six flour mills producing almost 585 barrels a day for residents and miners alike.53 By the late nineteenth century, fruits and vegetables had surpassed wheat in demand and profitability. Nevertheless, flour and feed remained dietary staples for people and livestock, and Sacramento’s early mills are an integral part of the city’s industrial heritage. In 1913, a historian reflected on a predictable of financial hardship for Sacramento’s mills:

51 Burg, “The Big Tomato.”
52 California Department of Transportation, “A Historical Context and Archaeological Research Design for Agricultural Properties in California,” 79.
53Stapp, Sacramento Chronicles, 22.

ENVIRONMENTAL RESOURCES

GENERAL PLAN TECHNICAL BACKGROUND REPORT 6.3-18 CITY OF SACRAMENTO The prospect for the milling industry is not very bright. Land is becoming too valuable for wheat culture and is diverted to fruit, dairying, beans, hops, etc. The export flour trade is therefore a thing of the past. The mills can look only for such an increase of their business as is consequential to the increase of population, which fortunately gives great promise.54
Figure 6. Globe Flour Mills Company. Source: Page & Turnbull, 2013.

Globe Flour Mills
This fist milling operation on this site began in 1881. In 1914, the Phoenix Milling Company constructed a new, five-story mill building on C Street. It was designed by architect P.J. Herold and was of poured concrete construction, an early modern use of concrete in Sacramento. The mill complex was purchased in 1919 by the Globe Flour Mills Company, “one of the key companies that made Sacramento a center of agricultural shipping and contributed to the city’s ‘astounding’ industrial payroll.”55 The complex was purchased by Pillsbury in 1940, and it was enlarged and modernized in 1941 and 1942. Feed was manufactured there from 1941 to 1960, and the mills continued to produce flour until operations ceased in 196856. Key portions of the Globe Mills complex were recently rehabilitated as an award-winning adaptive reuse project and now functions as a loft-style apartment complex.

54 William L. Willis, History of Sacramento County California with Biographical Sketches of the Leading Men and Women of the County Who Have Been Identified with Its Growth and Development from the Early Days to Present (Los Angeles: Historic Record Company, 1913), 398.
55 “Lofts at Globe Mills,” accessed 8 January 2013, http://www.loftsatglobemills.com/index2.html. 56 Redevelopment Agency of the City of Sacramento, “Globe Mills Adaptive Reuse Project,” Draft Environmental Impact Report/Environmental Assessment, 10 September 2004.

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CITY OF SACRAMENTO 6.3-19 GENERAL PLAN TECHNICAL BACKGROUND REPORT

Figure 7. Insurance Maps: Sacramento, California (Sanborn-Perris Map Co., 1895). This map shows Pioneer Box Company’s warehouses at Capitol Avenue and Front Street and demonstrates its proximity to lumber facilities such as Friend and Terry Lumber Shed, Richards & Knox Lumber Shed, and Sacramento Lumber Co. This pattern is common for lumber yards and box factories throughout the 1895 Sacramento Sanborn Map. The placement of the Sacramento Flour Mills near both rail and water transportations lines was typical of agricultural industrial enterprises in Sacramento at the time.

Canning
Following the Gold Rush, from the 1850s through the 1870s, the canning process was still undergoing refinements. The process was clumsy and expensive:
…canners labored under incessant difficulties. First, mistakes in processes, then high freight, crude machinery and methods. The cans were all made from hand. Tin frequently cost the packers as high as $20.00 per box, and solder and other material in the same proportion…[Y]et during these early pioneer days California canned fruits, jams and jellies of the finest possible quality were packed, and in heavy syrups.57

The region’s first salmon cannery, Hapgood, Hume & Co., was established in 1864 on the west bank of the Sacramento River in West Sacramento.58 Salmon fishing became an increasingly profitable business, and approximately 20 salmon canneries were constructed along both banks of the Sacramento River during the 1870s and 1880s.59 According to an account from 1914, Sacramento’s salmon canning industry was somewhat short-lived due to overfishing:

57 Jacobs, “The Rise and Progress of the Canning Industry in California,” 32. 58 W.I Crawford, “The Development of the Salmon Canning Industry,” in Arthur I. Judge, ed. A History of the Canning Industry (Baltimore, MD: The Canning Trade, 1914), 46.
59 National Park Service (NPS), “First Pacific Coast Salmon Cannery Site: Broderick, Yolo County, California,”

ENVIRONMENTAL RESOURCES

GENERAL PLAN TECHNICAL BACKGROUND REPORT 6.3-20 CITY OF SACRAMENTO At one time salmon was so plentiful in the Sacramento [River], that all canneries were swamped by the supply during years when there was a heavy run…A great deal of this salmon was also canned in those years in San Francisco, but after the rivers were fished out, the packing of salmon ceased [by the late 1880s].60 Overfishing did not mean the end to Sacramento’s canning industry as a whole, however. Fruit from the surrounding valley became the primary canned goods produced in Sacramento. The Capitol Packing Company was established in Sacramento in 1882. It had operations at Front and K Streets—near the waterfront and the western terminus of the Transcontinental Railroad, and 11th and B Streets—near the Southern Pacific Rail line. The company packed and shipped more than 2,000 tons of fruit in 1887.61 In the late 1880s, the fruit shipping industry was seen as a young, but growing:

The fruit shipping industry is yet in its infancy, but may now be considered as in a healthy condition, and bound to grow to gigantic proportions. As new railroads center here [in Sacramento] and fresh competition is added in the carrying trade, better facilities are afforded, quicker time, and lower rates, the business will be found practically to have no limit.62
According to an 1888 history, almost ninety percent of green fruit, besides oranges, that left the state was shipped from Sacramento. The 1887 growing season saw almost 3,000 rail car loads full of fruits and vegetables shipped east from Sacramento. A substantial amount of this fruit was grown in Sacramento County, in addition to what was grown in El Dorado, Placer, Yolo, Solano, and other counties. Winter fruits grown in the area included oranges, lemons, pomegranates, olives, and persimmons. In the spring, strawberries, raspberries, blackberries and cherries were in season. Apricots, plums, peaches, pears, and nectarines were harvested in the early summer months. Fall fruits included apples, pears, grapes, quinces, prunes, and peaches.63
Several important canneries and their histories are discussed below.

Libby, McNeill, & Libby
In 1912, the Chicago-based meat canning company Libby, McNeill & Libby opened what would become the largest fruit and vegetable cannery on the West Coast at the intersection of 31st Street, R Street, and Stockton Boulevard (extant).64 By 1918, nine large brick buildings designed by architects A.C. Rhoades and Washington Miller were constructed at the nine-acre complex.65 The cannery was described as having excellent rail connections, having two spur tracks connected with the Southern Pacific railroad and the Northern Electric railway.66 Fresh produce from nearby farms was typically delivered to the cannery on trucks and wagons, and

Withdrawal of National Historic Landmark Designation (2004), http://www.cr.nps.gov/nhl/DOE_dedesignations/Salmon%20Cannery.htm. 60 Jacobs, “The Rise and Progress of the Canning Industry in California,” 38. 61 Sacramento: The Commercial Metropolis of Northern and Central California (Sacramento: A.J. Johnson & Co., 1888), 71.
62 Sacramento: The Commercial Metropolis of Northern and Central California, 32. 63 Sacramento: The Commercial Metropolis of Northern and Central California, 27- 31. 64 William Burg, “The Big Tomato.”
65NPS, “Libby McNeil and Libby Fruit and Vegetable Cannery,” National Register of Historic Places Nomination Form, 1982.
66 C.W. Geiger, “Libby, McNeill & Libby’s Sacramento Cannery,” Canning Age, (January 1921), 12.

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CITY OF SACRAMENTO 6.3-21 GENERAL PLAN TECHNICAL BACKGROUND REPORT

crates of canned goods were loaded into freight cars and shipped via railroad.67 Libby, McNeill & Libby ceased the complex’s canning operations in 1980. Today, the complex is a business park known as “The Cannery.”
Figure 8. Former Libby, McNeill & Libby cannery. Source: Page & Trumbull, 2013.

California Almond Growers’ Exchange and Calpak Plant No. 11 In 1914, the California Almond Growers’ Exchange, a corporation formed in 1910 from nine smaller growers’ associations, erected its first almond hulling and shelling plant in Sacramento at 18th and C Streets (non-extant). Between 1922 and 1929, the 1914 plant expanded considerable to include new facilities for the manufacture and canning of blanched, salted, roasted, and sliced almond varieties. In 1938, the growers’ exchange’s new corporate office were constructed adjacent to the factory. A massive storage complex was constructed on the north side of the railroad tracks in 1957, and additional distribution and storage facilities were build in 1971.

During the first major expansion of the plant in the 1920s, the California Packing Company—a newly formed business unrelated to the almond growers’ exchange—constructed a cannery for its Del Monte brand of produce immediately to the west of the exchange’s factory. The cannery, a large brick plant that occupies two square blocks, was known as Calpak Plant No. 11.

Approximately 2,500 workers were employed there during the company’s busiest periods (Burg, 2011). Four Del Monte canneries were built in Sacramento, but only Plant No. 11 remains. The others were located at Front and P Streets, 3rd and X Streets, and 19th and R Streets.

67 Burg, “The Big Tomato.”

ENVIRONMENTAL RESOURCES

GENERAL PLAN TECHNICAL BACKGROUND REPORT 6.3-22 CITY OF SACRAMENTO Figure 9. Calpak Plant No. 11, now the Blue Diamond Growers plant. Source: Page & Trumbull, 2013.

In 1982, the California Almond Growers’ Exchange purchased Plant No. 11 from the California Packing Company, thereby expanding its manufacturing facilities, storage, and offices, and introduced a shop and visitors center. The growers’ exchange has been known as the Blue Diamond Growers since 1987, and continues to operate out of the facilities mentioned above.68 American Can Company
Opened in 1926, the American Can Company plant on C Street between 33rd and 40th Streets was a major regional manufacturer of tin cans. Employing approximately 900 workers at peak canning season, the plant supplied cans to several of Sacramento’s largest canneries, including Calpak Plant No. 11 and Libby, McNeill & Libby. The sprawling complex was designed in a Streamline Moderne style and was served on its north side by the Southern Pacific Railroad.

The irregularly-shaped factory building has several distinct wings that feature a variety of roof forms including flat, saw-tooth, and gabled with a stepped parapet. Today, the plant is part of the 380,000-sq. ft. Cannery Business Park and appears much as it did in a historic photograph from 1945 (see below).69

68 Blue Diamond Growers, “Historic Timeline,” accessed 4 January 2012, http://www.bluediamond.com/index.cfm?navid=394.
69 Michael Shaw, “AKT Buys East Sac Business Park,” Sacramento Business Journal, 12 November 2006, accessed 4 January 2012, http://www.bizjournals.com/sacramento/stories/2006/11/13/story7.html?page=all.

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CITY OF SACRAMENTO 6.3-23 GENERAL PLAN TECHNICAL BACKGROUND REPORT

Figure 10. American Can Company Complex. Source: Page & Trumbull, 2013.

Bercut-Richards Packing Company
The Bercut-Richards Packing Company was established in 1931 by joint owners Tom Richards and brothers Henry and Peter Bercut. The cannery, originally constructed in 1928-29 by the short-lived California Cooperative Producers Company was located on North 7th Street near the American River. It was constructed of brick and had a sawtooth roof. The Bercut-Richards Packing Company, which packed 300,000 cans in its first year, was a major producer of canned tomato products and specialized in a variety of other fruits and vegetables. The plant expanded several times during the 1930s to include brick and hollow clay tile warehouses for cold storage, office buildings, and a cafeteria for employees.. From 1942 to 1945, part of the complex functioned as the Sacramento Army Signal Depot as well as a camp for German prisoners of war. The cannery continued to operate until the early 1980s, and the machinery was finally sold in 1998.70 All of the complex, with the exception of the scale house, was demolished in 2009- 2010 and the property is currently being redeveloped as part of the Township 9 mixed-use development.71
Campbell’s Soup Company
The Campbell’s Soup Company plant, located on Franklin Boulevard between 38th and 47th avenues, is the company’s oldest remaining factory. Constructed in 1947 as a sprawling concrete industrial complex, it was the last large-scale canning operation to open in the city, producing large quantities of soups, sauces, and beverages (many of which were tomatobased) and contributing to Sacramento’s identity as “The Big Tomato,” which was a general term used for the local canning industry. A decision was made to close the Sacramento plant and transfer production to other Campbell’s Soup Company plants in North Carolina, Ohio, and Texas, Operations of the plant were downsized in phases beginning in September 2012, and the plant ceased production in July 2013.72

70 City of Sacramento, “Township 9 Draft Environmental Impact Report,” Sacramento, CA, 2009, 6.4-4 – 6.4-7. 71 Burg, “The Big Tomato.”
72 “Campbell Soup Shutting Down Sacramento Plant; 700 Jobs Being Cut,” CBS Sacramento, 27 September 2012, accessed 1 April 2014, http://sacramento.cbslocal.com/2012/09/27/campbell-soup-is-shutting-down-sacramentoplant/.

ENVIRONMENTAL RESOURCES

GENERAL PLAN TECHNICAL BACKGROUND REPORT 6.3-24 CITY OF SACRAMENTO Figure 11. Campbell’s Soup Company cannery. Source: Page & Trumbull, 2013.

Dairy Operations
In 1860, the Central Valley boasted 101,000 dairy cows; 163,000 by 1910.73 While small dairies were found throughout the region, the dairy industry developed rapidly at the beginning of the 20th century as technology and transportation developed to support larger scale dairy industrial complexes. North Sacramento and, with the completion of work under Reclamation District 1000, land in North Natomas was increasingly devoted to dairy cows.

Crystal Cream & Butter was founded by George Knox in 1901, in the back of a small grocery store located at 728 K Street. The small operation produced only butter and cream, sourced from dairy farms in what is now North Sacramento. Crystal was purchased by Danish immigrant Carl Hansen in 1921. Crystal had two trucks and 10 employees. Within only a few years of purchasing Crystal, Hansen expanded its operations to include bottled milk, and relocated to larger facilities on D Street. The company continued to diversity its product range, first offering ice cream in 1930, pioneered new processing technologies, such as milk cartons in 1939, and grew into one of the largest independent dairies in California. Roads, then rail and traction lines, came in from the north, bringing milk to the company site for further processing. The company relocated within Sacramento again in 1996.

Box factories in Sacramento
The transportation of canned goods required the manufacture of boxes, and the lumber necessary to that process. Sacramento’s lumber yards were established in close proximity to the Sacramento River and the Southern Pacific Railroad Line that ran along B Street, cutting to run along the Sacramento River from H Street until approximately W Street, with a connecting line along the R Street rail corridor.

73 California Department of Transportation, “A Historical Context and Archaeological Research Design for Agricultural Properties in California,” 88.

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CITY OF SACRAMENTO 6.3-25 GENERAL PLAN TECHNICAL BACKGROUND REPORT

Box factories and warehouses were built near lumber yards for easy access to lumber.

Proximity to the lumber yards also meant access to river and rail transportation. An 1895 Sanborn Fire Insurance Map shows Pioneer Box Company’s warehouses directly across the street from Friend and Terry Lumber Shed, and next door to Richards & Knox Lumber Shed and Sacramento Lumber Co. (See Figure 7). This pattern is common for lumber yards and box factories throughout the 1895 Sacramento Sanborn Map.

From the Northwest Land Park, Cultural Resources Inventory and Evaluation Report:

Capital Box Factory was the first and longest-lived of Sacramento’s six box manufacturing firms. The company built its original facility at 2nd and Q Streets in 1859.

By 1920 a second box factory had opened when California Pine Box Distributors, a statewide cooperative, established its Sacramento affiliate. The Sacramento plant remained in business at least as late as 1928, but appears to have gone out of business by 1951, when the Sacramento Union published a profile of local box manufacturers that did not mention the cooperative.

Established by box manufacturing entrepreneur Curt Setzer and a group of co-investors in 1923, Sacramento Box and Lumber Company was, by all appearances, the largest and most successful of Sacramento’s box manufacturing operations. The company built its factory at 65th and R Streets, then just outside the city limits. A 1926 fire completely destroyed the company’s structures and equipment, as well as most of its lumber.

Sacramento Box and Lumber Company rebuilt and subsequently expanded its operations to include a logging camp at Kyburz and, later, satellite offices in New York, Chicago, Detroit, and Los Angeles. Woodleaf Timber Company purchased Sacramento Box and Lumber Company in July 1958 and shuttered the Sacramento facility six weeks later.
…Following the 1926 fire at Sacramento Box and Lumber Company, Setzer divested himself of his interest in the company and began plans for his own box factory. In 1927, Setzer Box Factory opened at its 3rd and Y Streets location. Owned entirely by Setzer, who claimed to have made his start in the box manufacturing industry as an eleven-yearold boy, the Setzer facility was the first of several industrial operations constructed on the newly subdivided Wright and Kimbrough tract. A 1927 Sacramento Bee article indicates that Setzer Box Factory was just one of several development projects that appeared near the city’s southern limits in the late 1920s. Setzer announced in March 1927 that he expected to open with around 50 employees on his payroll, but, according to the Sacramento Bee, the factory employed nearly 100 as of September of that year.

The Great Depression did little to check the growth of the Setzer operation. In 1934, Setzer expanded his facility to include a sawmill as well a lumber pond measuring the equivalent of nearly one city block. According to Carey & Company’s 2006 evaluation of the Setzer Forest Products properties, this expansion allowed [the company] circumvent the ill effects of government price controls on processed timber.

In the following years Setzer continued to expand and diversify his plant’s output. In the 1930s the factory began acquired license and purchased the machinery necessary to compress the waste materials from its box manufacturing into Presto Logs. By the time a 1951 Sacramento Union article on the company was published, Setzer’s outfit, now named Setzer Forest Products, continued to produce boxes, but also supplied wood to Detroit auto makers, Wisconsin door manufactures, and producers of “high quality wood manufactured products” in Maine. According to Carey & Company, however, in the

ENVIRONMENTAL RESOURCES

GENERAL PLAN TECHNICAL BACKGROUND REPORT 6.3-26 CITY OF SACRAMENTO postwar years, cheaper cardboard boxes gained favor over wood ones, leading Setzer Forest Products to discontinue producing crates. Starting in the 1960s, the company’s output was limited mostly to fabricating wood moldings for houses.74 Setzer Forest Products remains active on its Northwest Land Park site. While there has been a historical survey that suggests the potential for an historic district involving the Setzer structures, a subsequent survey suggests that there have been alterations and additions over the decades to several of the structures, such that there are no buildings that would be eligible for listing in the California Register of Historical Resources, and an EIR has been certified for a project that would remove the Setzer-related structures.

Marketing and the Fresh Fruit Industry in California
Since the 1860s, fruit growers throughout California attempted to develop strategies for cooperative marketing efforts. Established in 1901 and headquartered in Sacramento, the California Fresh Fruit Exchange was “a statewide cooperative to market California fresh fruit throughout the world and to help solve technical and financial problems facing growers in the packing and shipping of fruit.”75 The name of the organization was changed a few years later to the California Fruit Exchange, the second organization in history to use that name.76 New offices of the California Fruit exchange, “the world’s largest deciduous fruit marketing cooperative,” were built in one of downtown Sacramento’s earliest skyscrapers in 1914.77 The extant California Fruit Building (also known as the Desmond Building), which is located at 1000-1006 4 th Street, was “built by local interests to house several fruit-shipping companies.” In 1932, the offices relocated to the Blue Anchor Building (built in 1931) at 1400 10th Street, in close proximity to the State Capitol. The Blue Anchor Building remained the headquarters of the California Fruit Exchange until 1966, when the building was purchased and has since been occupied by the State of California.78

74 Northwest Land Park LLC 2010.
75NPS, “Libby McNeil and Libby Fruit and Vegetable Cannery.” 76 Erich Kraemer and H.E. Erdmann, History of Cooperation in the Marketing of California Fresh Deciduous Fruits, Bulletin 557(Berkeley: University of California, 1933). 77 William Burg, “Sacramento’s First Skyscraper,” Midtown Monthly, 22 April 2009, accessed 10 December 2012, http://www.midtownmonthly.net/life/sacramento%E2%80%99s-first-skyscraper/. 78NPS, “Libby McNeil and Libby Fruit and Vegetable Cannery.” CULTURAL RESOURCES: APPENDIX

CITY OF SACRAMENTO 6.3-27 GENERAL PLAN TECHNICAL BACKGROUND REPORT

Figure 12. California Fruit Building. Source: Page & Trumbull, 2013.

Figure 13. California Fruit Exchange building. Source: Page & Trumbull, 2013.

Can Production Facilities

ENVIRONMENTAL RESOURCES

GENERAL PLAN TECHNICAL BACKGROUND REPORT 6.3-28 CITY OF SACRAMENTO Although important to Sacramento industrial agricultural development, factories that produced cans for canning have not been evaluated in this context.

Sacramento Farmers Markets
From the Northwest Land Park, Cultural Resources Inventory and Evaluation Report:

Depression era Sacramento was home to a number of farmers markets. At least two of these markets preceded [the] Sacramento Farmers Market that occupied the Northwest Land Park project site: Tong Sung Farmers Market and Third and I Streets and Levi Zentner Market at 16th and B Streets. According to a 1999 article for Pocket News, the 16th Street market was notable for its owner’s insistence on establishing the prices at which the merchants renting his stalls could sell their goods. In addition, there were three markets founded during or prior to 1938.

In 1932 several farmers and distributors who had previously operated stalls at Levi Zentner Market bristled at the price controls in place at that market and decided to establish their own venue on a 6.85 acre lot in the Wright and Kimbrough industrial tract.

A corporate venture organized by Sigeichi Masuhara, Elder Cecchettini, and Caesar Viglioni, Sacramento Farmers Market generated funding for the business by selling shares to ethnic Japanese, Italian, and Chinese dealers. The new business used the money generated by their initial offering to pay for the new construction of the facility’s first two structures, and the market officially opened in 1933. In its first years of business, the market was successful enough to expand its facilities.

The farmers and produce distributors operating out of Sacramento Farmers Market were a mix of shareholders and non-shareholding tenants. In addition to fruits and vegetables, these dealers offered fish, poultry, and eggs to the grocery stores and individual shoppers who patronized the market. Some of the farming families and produce distributors who operated stalls at Sacramento Farmers Market remain active in the local produce distribution business.

During the 1940s and 1950s the Sacramento Farmers Market underwent major changes. Under the directive of Executive Order 9066, the ethnic Japanese majority of Sacramento Farmers Market shareholders spent the duration of World War Two in federal internment camps. While many returned to Sacramento farmers Market after the war, the farmers’ market ceased selling directly to consumers and operated primarily as a wholesale distributor serving grocery stores. However, by the late 1990 it had lost its share of the market in produce restaurants, specialty restaurants, and stores located in towns and cities outside Sacramento. The market continues to rent space to distributors, including Chick’s Produce, a company operate by the Cecchettini family.79 Subcontexts/Themes Not Included in This Evaluation
 Frozen Food and Ice Industry
The subcontext of the frozen food and ice industry has not been evaluated thoroughly for this context, though it is explored briefly in the Railroad context. Refrigerated boxcars for rail were developed at the same time as the canning industry. Wholesale grocers Hall, Luhrs & Company, located on K Street from approximately 1880-1928, pioneered the invention of a refrigerated railroad car that was capable of transporting fresh produce across the nation using ice quarried from the Sierra Nevada. The development of

79 Northwest Land Park LLC 2010.

CULTURAL RESOURCES: APPENDIX

CITY OF SACRAMENTO 6.3-29 GENERAL PLAN TECHNICAL BACKGROUND REPORT

mechanical refrigeration, and the frozen food industry, caused a change in demand from canned goods. At the same time, Sacramento was also a center for the preparation and distribution of frozen foods, ice production, and icing/manufacture of mechanical and icecooled refrigerator cars.

Decline of Canning and Packing Industry in Sacramento
Before 1930, Sacramento and its environs were home to 20 major canning or packing plants in addition to the facilities that produced the cans and packing crates.80 Sacramento’s canneries enjoyed large business booms during the two World Wars. After World War Two, no longer providing food to the troops abroad, the economic feasibility of many factories waned as the 20th century wore on. In the early 1980s three of Sacramento’s largest canneries were forced to close. These were Libby, McNeil & Libby; Del Monte (Calpak Plant No. 11); and BercutRichards.81 Today, the Blue Diamond Growers facilities on C Street are the only agro-industrial buildings to continue their historic functions.

Historic Themes and Associated Property Types
The following section summarizes important themes in the history of agriculture in Sacramento and identifies property types that reflect these themes. Significance and integrity discussions follow each property type so that additional resources relating to the history of agriculture and food production may be evaluated in the field. The significance discussion describes the criteria for which a resource may be historically significant and the integrity narrative provides guidance to determine whether the resource retains sufficient integrity to convey its historic significance.

The primary historic themes and events which characterize the history of agriculture in Sacramento include:
 Changing land uses and agricultural production and transport methods (see Railroad Context Statement) reflected the demand for Sacramento Valley produce from the nation and beyond;  Sacramento’s prominence in agriculture and related industries made it the permanent home of the California State Fair;
 Sacramento became home to many important agriculture-related manufacturing and shipping operations, and the agriculture industry was a major force in the city’s economic and population growth; and
 Influx of laborers who worked on farms and in packing plants in the area and operated manufacturing plants in Sacramento established ethnic communities Identification
For the purposes of determining eligibility for historic designation, two categories of resource types have been developed, based on the previous discussion of property types. Each category includes certain specific types of resources as listed below:

1. Industrial:

This category includes all buildings, structures and transportation features associated with a variety of agricultural manufacturing, canning, packing, and shipping operations within the City of Sacramento. Some industrial resources are

80 Mark Glover, “Canning Industry Wanes in California,” The Sacramento Bee, 28 September 2012, accessed 21 December 2012, http://www.fresnobee.com/2012/09/28/3010338/canning-industry-wanes-in-california.html. 81 Avella, Sacramento: Indomitable City, 47-8.

ENVIRONMENTAL RESOURCES

GENERAL PLAN TECHNICAL BACKGROUND REPORT 6.3-30 CITY OF SACRAMENTO individual buildings, whereas others may be identified as complexes of buildings, structures, machinery and related site and transportation features.

2. Institutional & Commercial:

This category includes a variety of buildings associated with agriculture-related organizations or businesses. It includes office buildings and produce distribution markets, which are not necessarily associated with an industrial property, as well as properties associated with the California State Fair.

Property types that were not evaluated as part of this context:
 Cultural Landscapes:

Farms and Ranches, including historic sites, historic designed landscapes, historic vernacular landscapes, and ethnographic landscapes that are surviving representations of agricultural production in the City of Sacramento require further research, evaluation, and documentation
 Residential:

Neighborhoods where agricultural laborers or cannery workers settled are important to the urban development of Sacramento, and require further research, evaluation, and documentation.

Industrial Complexes
As described above, Sacramento was home to several major manufacturing plants relating to the agriculture industry. These include, but are not limited to, canneries and mills. Two of the largest manufacturing facilities are located in Sacramento are listed in the National Register of Historic Places, the California Register of Historical Resources and the Sacramento Register of Historic & Cultural Resources: the Libby, McNeill & Libby Cannery located at 1724 Stockton Boulevard (built in 1912) and Calpak Plant No. 11 located at 1721 C Street (built in 1925, now part of the Blue Diamond complex). Additional large-scale manufacturing plants related to canning and milling include the California Almond Growers’ Exchange Almond Processing Facility at 1809 C Street (built ca. 1920s-1970s, now part of the Blue Diamond complex), the former American Can Company tin can plant at 3301 C Street (built in 1926, now the Cannery Business Park), and the Globe Flour Mills at 1127-1131 C Street (built ca. 1914-1942). Other agriculture-related manufacturing plants include dairies, such as the Glenn Dairy Company Building at 3030 Q Street/1700 Alhambra Boulevard (built in 1924). Some characteristics of manufacturing facilities include multiple brick or concrete structures, including silos and loading docks, which form large industrial complexes, timber frame construction, shed, gable and sawtooth roofs, roof monitors, and proximity to a railroad, or sometimes to multiple rail lines.

Note that earlier brick industrial buildings were generally finished with the exposed brick, or painted brick, instead of being plastered as would have been more typical for retail or commercial buildings. Also, structures were often aligned with rail lines or sidings.

Significance
Industrial buildings may be found eligible under National Register Criteria A and C, California Register Criteria 1 and 3, and Sacramento Register criteria i, ii, or iii. The history of Sacramento CULTURAL RESOURCES: APPENDIX

CITY OF SACRAMENTO 6.3-31 GENERAL PLAN TECHNICAL BACKGROUND REPORT

is closely tied to the agriculture industry, and many of the industrial properties were constructed along the railroad corridors that developed around the city center. Properties eligible for listing in the National Register under Criterion A or the California Register under Criterion 1 or Sacramento Register under Criterion i (event) should be 50 years old or older, and will have close association with the agriculture industry or be associated with an important historical event or pattern relating to the history of agriculture in Sacramento, California, or the nation.

For properties to be listed under National Register Criterion B, California Register Criterion 2, or Sacramento Register Criterion ii (Persons), industrial properties should be 50 years old or older and demonstrate a significant association with the lives of persons significant in the past.

For properties to be listed under National Register Criterion C, California Register Criterion 3, or Sacramento Register Criterion iii (Design/Construction), industrial properties should be 50 years old or older and demonstrate distinctive characteristics of a “type, period, region, or method of construction.”
Integrity
Of the seven aspects of integrity listed above, industrial properties should retain, in order of importance: integrity of design, association, feeling, location, setting, materials and workmanship; please note for local evaluations, however, that the Sacramento Register does not include integrity of “feeling.” Because the historic character of an industrial building or complex depends more on how it conveys the organization of work that occurs within, it is important that enough of the original design, including massing, structural systems, and spatial organization, remain intact in order to convey how the property was used. Integrity of association and feeling are ranked next in importance because the building or complex must retain enough overall integrity to express the significance of the industry. Location and setting are important because they illustrate how the industry was sited in regard to transportation and roads, adjoining properties, and similar industries. Materials and workmanship are often not as significant as they might be in other historic properties because industrial buildings are typically utilitarian structures that gain their significance more from function than from appearance.

Furthermore, alterations to an industrial plant occur quite frequently, especially if the business expands or incorporates newer technology. Alterations to an industrial plant (rather than demolishing it) attest to the flexibility of the original design.

Institutional Buildings
In addition to its numerous industrial complexes, Sacramento was also the headquarters for various professional associations and businesses with strong agricultural associations.

Institutional properties include office buildings and California State Fair buildings.

The extant California Fruit Building (built in 1914, also known as the Desmond Building) and the Blue Anchor Building (built in 1931, listed in the National, California and Sacramento Registers) once housed the headquarters of the California Fruit Exchange, “the world’s largest deciduous fruit marketing cooperative (NPS 1982a).” Both of these buildings were constructed in Sacramento’s downtown and are associated with the city’s commercial history. The California Fruit Building is a ten-story reinforced concrete structure designed in the Italian Renaissance Revival style, with tripartite vertical organization and a projecting cornice. The Blue Anchor Building is a two-story reinforced concrete structure designed in a Spanish Eclectic style, with a red tile roof and an L-shaped plan. Both buildings feature elaborate detailing.

Sacramento has hosted the California State Fair since 1861. While all of the nineteenth-century fair buildings and structures have long since been demolished, buildings survive at two different

ENVIRONMENTAL RESOURCES

GENERAL PLAN TECHNICAL BACKGROUND REPORT 6.3-32 CITY OF SACRAMENTO twentieth-century fairground locations. The Governor’s Hall and the Exhibition Hall were constructed near the northeast corner of Stockton Boulevard and Broadway as part of the fairgrounds that were in operation from 1909 to 1967 (UC Davis 2010). The following year, the fair was relocated north of the American River to the Cal Expo site. Because Cal Expo is nearing the 50-year threshold for historic significance, the historic significance of the grounds should be evaluated.

Significance
Institutional or commercial buildings may be found eligible under National Register Criteria A, B, and C; California Register Criteria 1, 2, and 3; and Sacramento Register Criteria i, ii, iii, or iv. As the places that personify an organization, cooperative or business and house its personnel, institutional properties are typically large, iconic standalone buildings. Properties eligible for listing in the National Register under Criterion A, California Register Criterion 1, or Sacramento Register criterion i (Event) should be 50 years old or older and will have a close association with a particular agriculture-related organization or be associated with an important historical event or pattern relating to the development of the agriculture industry in Sacramento.

For properties to be listed under National Register Criterion B, California Register Criterion 2, or Sacramento Register criterion ii (Person), institutional or commercial buildings should be 50 years old or older and should be closely associated with a significant person or persons associated with the agriculture industry.

For properties to be listed under National Register Criterion C, California Register Criterion 3, or Sacramento Register criterion iii (Design/Construction), institutional or commercial buildings should be50 years old or older and should “represent the work of a master or possess high artistic values,” or may also demonstrate distinctive characteristics of a “type, period, region, or method of construction.”
Integrity
In regard to institutional and commercial properties, the seven aspects of integrity in order of importance should be: design, materials, workmanship, association, feeling, location, and setting; please note for local evaluations, however, that the Sacramento Register does not include integrity of “feeling.” Institutional buildings typically express the values of the company or individual who built them, and therefore it is important for the building to retain the bulk of its physical characteristics, especially its original design and materials. Institutional and commercial buildings are often more elaborate than either residential or industrial properties and often embody unique examples of workmanship, which should be retained. Association and feeling with the property’s original builder/owner and era of construction are also important. Location and setting are also important aspects, providing the context for the resource.

Cultural Landscapes: Farms and Ranches
The Cultural Landscape sub-context has not been developed and still requires significant research, evaluation, and documentation.

Although a 2010 map of “Sacramento County Important Farmland” shows nearly all of the land within Sacramento’s city limits as “urban and built-up land,” it is possible that working orchards, farms, fields, or other agricultural operations remain in the city. After further study, a property may be best understood as a cultural landscape, defined by the National Park Service as “a geographic area, including both cultural and natural resources and the wildlife or domestic animals therein, associated with a historic event, activity, or person or exhibiting other cultural or CULTURAL RESOURCES: APPENDIX

CITY OF SACRAMENTO 6.3-33 GENERAL PLAN TECHNICAL BACKGROUND REPORT

aesthetic values.” There are four types of cultural landscapes: historic sites, historic designed landscapes, historic vernacular landscapes, and ethnographic landscapes.

Farming was a common occupation for many early Sacramentans, and family-run farming, dairy and ranching operations were common. As a result of the extensive development of the City and County of Sacramento over the course of the twentieth century, however, few of these early residential properties remain, especially those with their associated out buildings such as barns and tank houses.

The Edwin Witter Ranch is listed in the National Register and is located at 3480 Witter Way near the intersection of Interstates 5 and 80. The five contributing buildings on the property include the original farmhouse (built in 1918), the barn (built ca. 1918-1930s), the Craftsmanstyle foreman’s cottage (built in 1920), and the Witter Family Residence (built in 1934). On the opposite side of the city in the Pocket Area is located the Dutra Family Ranch Home (built ca. 1900), now located on the corporate property of the Parker Development Company at 8110 Pocket Road. The historic residence—the only surviving building from the ranch—was restored in 1986.82 Several other historic residential properties are located in the Pocket Area. In Natomas, the Azevedo Family, an early Portuguese dairy farmer in Sacramento, established a ranch in Reclamation District 1000 in Natomas in 1917. Although moved from its original location, the house and tank house remains today.

The National Park Service defines a cultural landscape as a “geographic area, including both cultural and natural resources and the wildlife or domestic animals therein, associated with a historic event, activity, or person or exhibiting other cultural or aesthetic values.” Furthermore, according to the National Park Service, there are four general types of cultural landscapes, which are not mutually exclusive: historic sites, designed historic landscapes, historic vernacular landscapes, and ethnographic landscapes.

Guidance for evaluating cultural landscapes can be found in the following National Park Service publications:
 National Register Bulletin 18: How to Evaluate and Nominate Designed Historic Landscapes  National Park Service Preservation Brief 36: Protecting Cultural Landscapes – Planning, Treatment, and Management of Historic Landscapes
 Guidelines for the Treatment of Cultural Landscapes
 Preservation Brief 32: Making Historic Properties Accessible Residential Buildings
The Residential property sub-context has not been developed and still requires significant research, evaluation, and documentation.

Additional agriculture-related residential properties may be identified in certain neighborhoods that were known to be populated by cannery and farm workers, including the Labor Market area.

Several extant buildings in what is now called Old Sacramento were residential buildings during the period when the neighborhood was part of the Labor Market. Many residents of the Southside neighborhood, which includes many extant residential buildings, were migrant workers.

Significance

82 Gregory, Sacramento’s Greenhaven/Pocket Area.

ENVIRONMENTAL RESOURCES

GENERAL PLAN TECHNICAL BACKGROUND REPORT 6.3-34 CITY OF SACRAMENTO Residential buildings may be found eligible under National Register Criteria A, B, and C; and California Register Criteria 1, 2, and 3; and Sacramento Register Criteria I, ii, iii, or iv. The history of Sacramento is closely tied to the agriculture industry and to the countless people who operated the fields, farms, and factories. Residential agricultural properties are important for their associations with the agricultural industries because they served as residences for laborers involved in the cultivation and production of agricultural goods and service. Properties eligible for listing in the National Register under Criterion A or the California Register under Criterion 1 (event) should be 50 years or older, and will have a close association with the agriculture industry or be associated with an important historical event or pattern relating to the history of agriculture in Sacramento.

For properties to be listed under National Register Criterion B, California Register Criterion 2, or Sacramento Register criterion ii (Person), residential properties should ideally be 50 years old or older, and be closely associated with a significant person or persons associated with the history of agriculture in Sacramento
For properties to be listed under National Register Criterion C or California Register Criterion 3 or Sacramento Register Criteria iii (Design/Construction), residential buildings should be at least 50 years old and should “represent the work of a master or possess high artistic values,” or may also demonstrate distinctive characteristics of a “type, period, region, or method of construction.”
Integrity
In regard to residential properties, the seven aspects of integrity in order of importance should be: integrity of association, setting, design, workmanship, materials, and feelings; please note, the Sacramento Register does not include integrity of “feeling.” Residential buildings may express regional or local settlement patterns ethnic origins, building technologies, usage, and stylistic preference of builders and residents. Therefore, it is important that the property retains the ability to convey its context, origins, and associations with the people who inhabited it as well as its agricultural-related setting or location. The aspects of workmanship, design, and materials are also important aspects of integrity, conveying importance of building technology, craft, and artistic inclinations of builders and owners. Location and feelings are also important aspects, providing the context for the resource.
 STATE GOVERNMENT CONTEXT STATEMENT
“Sacramento has survived the vagaries of governing one of the largest bureaucracies in the world and its ever-increasing need for office space.”83 The success of the City of Sacramento can be linked in many ways to its symbiotic relationship with the California State Government. With the incorporation of the city in 1850, which was shortly followed by California statehood, government offices were soon established in Sacramento. Sacramento became the State Capital in 1854. At the outset, many buildings in Sacramento held city, county, and state government offices, especially because there was often an overlap in city, county, and state services. In 1857, the city and county governments merged, pairing their services. The county’s board of supervisors was given authority that previously resided in the city council and was considered the body politic for the area. In 1863, after the

83 Center for Sacramento History, Images of America: Old Sacramento and Downtown (San Francisco: Arcadia Publishing, 2006), 7.

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CITY OF SACRAMENTO 6.3-35 GENERAL PLAN TECHNICAL BACKGROUND REPORT

devastating floods of the winter of 1861-1862, the two governments separated permanently.84 State government buildings followed developmental trends in the city. Often, early businesses and services were initially located on ships docked at the Sacramento River Embarcadero. They were later housed in structures in immediate proximity to the river, and were subsequently relocated to more permanent, purpose-built structures. So necessary was flood protection to the development of Sacramento as a permanent city that historical articles attribute the successful election of Sacramento’s first mayor, Hardin Bigelow, to his levee building efforts. Local and state governments organized in the 1850s almost immediately focused their efforts on flooding, a regular occurrence that needed to be addressed in order for the city to establish more permanent footings and to secure its position as the State Capitol. Themes associated with the history of state government in Sacramento include the migration of uses from temporary to permanent buildings, building infrastructure and maintaining services to support Sacramento as the State Capital, and the development of the Capitol Area and revitalization efforts.

Foundations
Sacramento was initially founded by John Sutter as New Helvetia, a fort about two and a half miles east of the Sacramento River. The discovery of gold in nearby Coloma in 1848 caused the population in Sacramento to explode. With the influx of traffic along the Sacramento River, new businesses and residential establishments developed along the embarcadero, including boarding houses, dry goods stores, and groceries.

Sutter went into debt and his rancho was ultimately subdivided. The lots were auctioned so that his family could regain financial solvency. In 1848, John Sutter’s son, John August Sutter, Jr. commissioned a street grid survey by William H. Warner of the United States Army Corps of Topographical Engineers and Lieutenant William Tecumseh Sherman (see Figure 1). That year the city was platted. Each street measured 80 feet wide, with the exception of Front Street, which was located above the levee, and M Street (Capitol Mall), which measured 100 feet wide.

Individual blocks measured 340 feet by 320 feet, and alleys were 20 feet wide. Sutter sold lots near the fort for $250 and those on the embarcadero for $500, and Peter Burnett was hired on December 30, 1848 to manage the sales.85 Although the debts of John Sutter and the unscrupulous business practices of entrepreneur Sam Brannan eventually caused the sale of the Sutter land to pay off Sutter Sr.’s debt, the gridiron plan established on the former Sutter holdings laid the foundation for the development of the city.

84 Steven M. Avella, Sacramento: Indomitable City, (San Francisco: Arcadia Publishing, 2003), 75. 85 Nathan Hallam, “The Historical Evaluation of Sacramento’s Central City Street Grid,” (master’s thesis, California State University Sacramento, 2008), 32-3.

ENVIRONMENTAL RESOURCES

GENERAL PLAN TECHNICAL BACKGROUND REPORT 6.3-36 CITY OF SACRAMENTO Figure 14. This map shows the original plat of the city. The confluence of the American and Sacramento Rivers has not yet been moved north. Sutter Lake is also present.

Map of Sacramento City, & West Sacramento, 1850 Reprint of 1848 Sacramento plat map, William H. Warner.[Center for Sacramento History, Eleanor McClatchy Collection, 1982/004/068].

The new infrastructure of roads and lots created a basic physical plan of development for the city; however, governmental services were needed in order for the city to prosper. The majority of activities in Sacramento occurred on the embarcadero, where goods, supplies, and CULTURAL RESOURCES: APPENDIX

CITY OF SACRAMENTO 6.3-37 GENERAL PLAN TECHNICAL BACKGROUND REPORT

passengers arrived via ship, and many of the first governmental services were located on the ships that brought them to Sacramento. The first post office in Sacramento was established in 1849 and was located on the Whilton, a ship docked at the Embarcadero on Front Street.86

Likewise, the first local prison was comprised of cells within a ship. These services relocated to more permanent frame and brick buildings along I, J, and K streets near the waterfront. In the fall of 1848, George Zins constructed the first brick house in Sacramento on land he obtained from Sutter. The property was bounded by M, N, Front, and 2nd Streets. Zins manufactured bricks in Sacramento, stamped with his initials, which were used in the first brick buildings in the City.87

Sacramento began to rise as a center for government, law, and order shortly after the Gold Rush began in the nearby foothills of the Sierra Nevada. This emergence of law and order was not unique to Sacramento. Many western towns were founded with the underlying ideal that men could move to the wilderness and successfully impose order on it and profit from it.

Isolated from centralized government, some community members in western settlements sought to impose control and stabilize the area on their own. One such organization was the Society of California Pioneers. Members believed they were part of history—that conquering the untamed land and settling it was their responsibility. Article 1 of the society’s constitution reads, its object shall be to cultivate the social virtues of its members, to collect and preserve information connected with the early settlement and conquest of the country, and to perpetuate the memory of those whose sagacity, enterprise, and love of independence induced them to settle in the wilderness and become the germ of our new state.88 This desire to impose order on the frontier helped contribute to the Sacramento’s establishment as a city and the building of government institutions there. Court buildings were built in Sacramento within a few years of the onset of the Gold Rush. Disputes from outlying areas were often brought to Sacramento to deal with issues of the law. In 1850, the first California Legislature established county courts in each county. The courts resided over misdemeanors and also performed duties that would later be the responsibility of the Board of Supervisors such as supervising claims against the county and managing roads. This system was abolished in 1860 in favor of a Board of Supervisors for legislative and supervisorial purposes and a superior court with both civil and criminal jurisdiction.89 The need to establish a legal center quickly was essential to western settlement. In Sacramento, local courts were used by leading merchants and landholders, who would often later become elected officials, to defend their sometimes dubious claims to land. Land ownership was concentrated and prices were high—leading to issues with squatters. Speculators used the courts to quash growing challenges to the legality of their land grants.90
The City of Sacramento was incorporated on February 27, 1850. It preceded California statehood, which occurred on September 9, 1850, and was one of the original twenty-seven charter communities in California. In his role as the first mayor of Sacramento, Hardin Bigelow

86 Center for Sacramento History, Old Sacramento and Downtown, 40. 87 William L. Willis, History of Sacramento County California with Biographical Sketches of the Leading Men and Women of the County Who Have Been Identified with Its Growth and Development from the Early Days to Present, (Los Angeles: Historic Record Company, 1913), 56
88 Society of California Pioneers, “Constitution and By-laws of the Society of California Pioneers, rev. (San Francisco:

C. Bartlett, 1853), Library of Congress Internet Archive, accessed 1 April 2014, http://www.archive.org/details/constitutionbyla01soci, Article I. 89 Willis, History of Sacramento County California, 212. 90 Mark A. Eifler, “Taming the Wilderness within: Order and Opportunity in Gold Rush Sacramento, 1849-1850,” California History 79, no. 4 (Winter 2000/2001), accessed 1 April 2014, http://www.jstor.org/stable/25463705, 99-200.

ENVIRONMENTAL RESOURCES

GENERAL PLAN TECHNICAL BACKGROUND REPORT 6.3-38 CITY OF SACRAMENTO encouraged citizens to raise the level of the levees along the rivers to protect the City from the frequent floods that plagued the region. The project was funded through a special $250,000 tax assessment.91 Mayor Bigelow also promoted the establishment of fire companies, a county hospital, a city prison, and a garbage removal system.92 The businessmen of Sacramento, concerned with the success of the city as well as their personal industries, were synonymous with the local government at this time.

Battling the Elements
Sacramento’s position as a successful center of commerce, even as it continued to attract more prospectors and residents, remained tenuous. Numerous fires and the cyclical flooding of the Sacramento and American rivers wreaked havoc on the new city. After another devastating flood in 1850, the city government undertook its first major project—building a rudimentary levee on the American River.93 On February 5, 1850, citizens met at the City Hotel in Sacramento and established the first volunteer fire company, Mutual Hook and Ladder Company No. 1. The volunteer fire fighters fought a large fire on Front Street in April of that year, using a rig provided by Lewis and Bailey merchants.94 Despite the establishment of several new firefighting companies and the installation of water cisterns on J and K Streets, fires continued to plague the city. On November 4, 1852, when Sacramento had a population of about 12,000, the city was nearly destroyed by fire.

Meanwhile, great floods in 1852 and 1853 prompted Sacramentans to strengthen the levees and raise the grade of the business district roughly five feet to improve drainage. The first floors of older buildings were converted to basements. Dirt was hauled in, and contractors built up, or “lifted,” I, J, and K Streets from the levee to the public square at 10th Street. Taxes on property owners paid for the undertaking. The establishment of firefighting companies and improved flood control measures created prosperity in the city for the remainder of the decade and made Sacramento an attractive option as the new location of the State Capitol.95 Permanent Measures
To ensure that Sacramento would remain an economically viable city after the Gold Rush, the city competed with San Jose, Monterey, Vallejo, and Benicia to become the State Capitol in 1854. Sacramento ultimately won the bid because it had recently improved its levees, become a major transportation hub along the Sacramento River, and constructed a wealth of accommodations and facilities for legislators. In addition, the city offered multiple city blocks of land, a new brick courthouse, a fireproof archive for state documents, and a new state printing facility. In exchange for support from San Francisco, Sacramento also agreed to endorse that city’s senatorial candidate, David Morse.96 Early historian William L. Willis characterized what Sacramento had to offer the state government in the mid-19th century:

91 Heather Lavezzo Downey, “Raised Streets & Hollow Sidewalks Historic Context Statement,” (City of Sacramento and Sacramento Old City Association), 8 December 2010.
92 Willis, History of Sacramento County California, 42. 93 Kenneth N. Owens, “River City: Sacramento’s Gold Rush Birth and Transfiguration,” in River City and Valley Life:

An Environmental History of the Sacramento Region, Christopher J. Castaneda and Lee M.A. Simpson, ed. (Pittsburgh: University of Pittsburgh Press, 2013), 56. 94 Thor Severson, Sacramento, An Illustrated History: 1839-1874, From Sutter’s Fort to Capital City, San Francisco:

California Historical Society, 1973).
95 Barbara Lagomarsino, “Early Attempts to Save the Site of Sacramento by Raising its Business District,” (master’s thesis, Sacramento State College, 1969), 15, 28. 96 Hallam, “The Historical Evaluation of Sacramento’s Central City Street Grid,” 46.

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[The first state legislature] met there [in Benicia] again January 2, 1854, when Governor Bigler submitted to it a communication from the mayor and council of Sacramento, tendering to the state the free use of the [county] courthouse, with its safe, vaults, etc., together with a deed for the block of land between I and J, Ninth and Tenth streets. On the 9th of February, Senator A. P. Catlin introduced a bill in the senate providing for the fixing of the permanent seat of government at Sacramento, and accepting the block of land, which was passed. The legislature then adjourned to this city, where the citizens received the members and state officers with an enthusiastic demonstration. The legislature met in the new courthouse March 1, 1854.97
Figure 15.This stereocard image of the floods in January 1862 shows J Street looking east from the levee.

97 Willis, History of Sacramento County, California, 360.

ENVIRONMENTAL RESOURCES

GENERAL PLAN TECHNICAL BACKGROUND REPORT 6.3-40 CITY OF SACRAMENTO [Center for Sacramento History, Don Rivett Collection, 1984/032/001].

Sacramento officially became the seat of California’s state government in 1854 amid a series of setbacks. Devastating fires in 1852 and 1854 destroyed many of Sacramento’s businesses in the newly established downtown, including the county courthouse, which also served as the first State Capitol Building:

The first courthouse erected in Sacramento, at Seventh and I streets, was begun in June, 1850, and completed December 24, 1851. The sessions of the legislature of 1852 and 1854 were held in it. It was destroyed in the great fire of July 13, 1854, which consumed a large part of the business portion of the city. Immediately after the fire, a contract was entered into for the erection of the one on the same site which was recently demolished to make room for the new one at present being erected. The cost in toto [sic] was $240,000, although the original contract was for $100,000. The cornerstone was laid September 27, 1854, with Masonic ceremonies, and the building, which was of brick, was completed January 1, 1855, and was used by the state as a capitol from 1855 until the present capitol was built.98

The state government began to share offices with the city and county in the Sacramento County Courthouse building. In 1856, the California State Legislature voted to build a new State Capitol building for $300,000; however, it was some time before plans for the new capitol took shape. In 1858, the California State Legislature approved a bill to consolidate the Sacramento City and County governments to correct governmental inefficiencies and pay off debt incurred from the flood and fire emergency work.99 The local governments remained merged for five years.100

In 1860, the legislature accepted plans for a building to be constructed on the city blocks bound by 10th, 11th, L, and N Streets.101 However, during the floods of 1861-1862, the levee on the northeastern part of Sacramento failed to hold the river. This prompted the legislature to discuss abandoning Sacramento as the Capital City. A movement to raise the city’s streets began as early as 1862 and in 1863, a newly commissioned Board of Trustees began the public-private project. The trustees hired contractors to fill the streets, but taxed private property owners to finance the effort. Private property owners were financially responsible for the costs of raising their own buildings (see Figure 4). They were also responsible for building the sidewalk in front of their buildings to meet the new street grade. Supporters of this solution believed it would result in higher property values, better public health, and help to assure Sacramento was the permanent state capital. The fear of losing the capital seat of the state was quite real in light of the State Legislature’s flight to San Francisco during the floods of 1861-1862. The city’s endeavor to raise the streets demonstrated the seriousness of its citizens’ desire to remain the State Capitol. From 1862-1869, private property owners collaborated with contractors to bring in landfill to raise I, J, and K Streets about nine feet in grade on average from Front Street to about 12th Street. (see Figure 5). 102

98 Willis, History of Sacramento County, 59.
99 Heather Lavezzo Downey, “Raised Streets & Hollow Sidewalks Historic Context Statement,” 11. 100 Center for Sacramento History, Old Sacramento and Downtown , 40. 101 Center for Sacramento History, Old Sacramento and Downtown, 36.. 102 Owens, “River City,” 56; Downey 76-9, 87.

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CITY OF SACRAMENTO 6.3-41 GENERAL PLAN TECHNICAL BACKGROUND REPORT

Figure 16. To avoid floodwaters, many buildings in Sacramento were raised in the 1860s and ‘70s. Pictured is the Sacramento County Courthouse being raised with jacks.
[Center for Sacramento History, California State Library Collection, 1968/110/238].

ENVIRONMENTAL RESOURCES

GENERAL PLAN TECHNICAL BACKGROUND REPORT 6.3-42 CITY OF SACRAMENTO Figure 17. Bare Earth Map, Sacramento, City of Sacramento, 2003.

This map demonstrates those parts of downtown, including raised streets, which were filled during the street-raising project in the 19th-century, permanently modifying the landscape.

In 1866 Mark Twain, then a journalist for the Virginia City Territorial Enterprise, remarked on the effort:
…the energy and the enterprise the Sacramentans have shown in making this expensive grade improvement and raising their houses up to its level is in every way creditable to them, and is a sufficient refutation of the slander so often leveled at them that they are discouraged by the floods, lack confidence in their ability to make their town a success, and are without energy. A lazy and hopeless population would hardly enter upon such costly experiments as these when there is so much high ground in the State which they could fly to if they chose.103
Between 1864 and 1868, the U.S. Army Corps of Engineers rerouted the American River at its confluence with the Sacramento River to a point further up the river, and dredged it of mining debris. By straightening a curve in the American River and joining the American and Sacramento rivers approximately one mile above their natural juncture, the Corps increased the flow of the river and decreased its likelihood of flooding. Dirt from the re-routing of the American River was used as fill for the City’s raised streets. By the time the city had completed its project of raising the streets downtown in 1878, Governor William Irwin had created the Office of the State Engineer to investigate irrigation, drainage, and navigation of the state’s rivers.

103 Mark Twain, “Letter from Sacramento,” Territorial Enterprise, 25 February 1866, accessed 10 December 2012, http://www.twainquotes.com/18660200gt.html.

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CITY OF SACRAMENTO 6.3-43 GENERAL PLAN TECHNICAL BACKGROUND REPORT

Flood control efforts were necessary to secure Sacramento’s status as the State Capital; however, these measures slowed the plans for the new Capitol Building. Mark Twain observed the pace of the project:

They have already got one capitol here, and will have another when they get it done.

They will have fine dedicatory ceremonies when they get it done, but you will have time to prepare for that–you needn’t rush down here right away by express. You can come as slow freight and arrive in time to get a good seat.104
In 1854 Sacramento was named California’s capital city. The State Supreme Court took space in the B.F. Hastings building (extant) at 2nd and J Streets. The building was constructed in 1853 and originally primarily housed shops and offices. With the exception of two years at a different location, the State Supreme Court met at the B.F. Hastings building until its new chambers in the State Capitol Building were opened for use in 1869, although the building was not completed until 1874.
105 Architects Reuben Clark and M.F. Butler modeled the California State Capitol to feature neoclassical architectural features common to the United States Capitol Building in Washington, D.C. and other state capitols. The building was designed to house the executive, legislative, and judicial branches of government. In 1864, Gordon P. Cummings became supervising architect after Clark fell ill and was hospitalized due to stress from the “continued and close attention to the building of the State Capitol in Sacramento.”106 Under his leadership, plans to clad the building with cast iron and stucco were changed to granite. The first story of the building was clad with granite quarried in Folsom, which was brought to Sacramento via the Sacramento Valley Railroad. The upper stories were clad with granite from Penryn, which was transported via the new Central Pacific Railroad.107 The health and safety of Sacramento further improved when, in 1872, a State Legislative Act was passed to create a paid full-time fire department in Sacramento. Flood control efforts continued throughout the remainder of the nineteenth century. In 1880, State Engineer William Hammond Hall created the first integrated, comprehensive flood control plan for the Sacramento Valley, which consisted of a system of levees, weirs, and bypass channels to protect urban centers. The flood control plan was largely prompted by a flood of the Sacramento Valley in 1878, but did not gain federal financial authorization until 1917 when Congress authorized the Sacramento Flood Control System.108
Expansion of State Government Buildings and the Capitol Complex In 1872, the Capitol area increased in size from four blocks—bounded by L, N, 10th, and 12th Streets—to occupy ten blocks. The next major changes to the Capitol area were influenced by the City Beautiful movement—an effort to modernize and improve the health and beauty of cities. The movement, which originated in Chicago in the 1890s, was expressed in Sacramento through both civic and private buildings constructed from that time into the 1920s. Nearly thirty new buildings were constructed downtown during this period, many in Beaux-Arts and Neoclassical Revival styles typical of the time. Examples of these buildings include City Hall,

104 Twain, “Letter from Sacramento.”
105 Center for Sacramento History, Old Sacramento and Downtown,36. 106 California State Capitol Museum, California State Capitol History part II, “Construction: Concept to Reality,” accessed 1 April 2014, http://capitolmuseum.ca.gov/virtualtour.aspx?Content1=1482&content2=1474&content3=350. 107 California State Capitol Museum,. “Capitol History,” (2009), accessed 27 December 2012, http://capitolmuseum.ca.gov/architecture.aspx.
108 Jeff Crawford and Jessica Herrick, “Intelligent Engineering: William Hammond Hall and the State Engineering Department,” Sacramento History Journal 4, no. 1-4, 2006.

ENVIRONMENTAL RESOURCES

GENERAL PLAN TECHNICAL BACKGROUND REPORT 6.3-44 CITY OF SACRAMENTO designed by Sacramento architect Rudolph Herold (1911); the City Justice Building designed by Shea and Lofquist (1916); the National Gold Bank of D.O. Mills and Company, designed by Willis Polk (1912); and the Southern Pacific Railroad Depot Building, designed by Bliss & Faville (1925).109
Figure 18. Postcard of the Capitol and Capitol Extension Buildings. Date sometime between the completion of the Capitol Extension in 1928 and construction of the East Annex to the Capitol in 1949.

Source: Page & Turnbull’s collection.

As California’s state government matured, the Capitol building became crowded. In 1911 the city deeded two blocks bounded by L, N, 9th and 10th Streets to the State Two new buildings were approved, but World War I slowed progress. In the 1920s, Sacramento legislators became concerned that Sacramento would lose its concentration of state government offices and that departments would be scattered to different cities, particularly San Francisco. In response, the State Legislature approved $3 million in bonds to construct two new buildings: a State Office building and the State Supreme Court and State Library Building. Designed by the San Francisco Bay Area architectural firm Weeks & Day in the Greek Revival style, construction of the two new buildings west of the State Capitol was completed in 1928. When the State Supreme Court and State Library offices vacated the two-story apse located on the east end of the State Capitol Building in 1928, the State Controller’s Office moved into their former spaces.

In 1929, Harland Bartholomew and Associates, the nationally-renowned urban planning firm from St. Louis, prepared a comprehensive plan for Sacramento, which proposed the construction of monumental public buildings on M Street (Capitol Mall). 110

The onset of the Great Depression slowed, but did not cease, construction, thanks to both city

109 Sacramento Heritage, Inc., “Sacramento’s City Hall Area Walking Tour,” 2011, accessed December 2013,
http://www.sacramentoheritage.org/files/Downtown_Tour_City_Hall_Area_Writeup_booklet.pdf. 110 Capitol Buildings and Planning Commission, the California State Capitol Plan - Preliminary (December 1960), 2.

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planning efforts and federal funding, which Sacramento was successful in obtaining, largely due to the military installations located within the city (see Post-World War II, Redevelopment, and Transportation Context). The Sacramento City Council pledged $25,000 in 1929 towards the construction of a new post office. In 1931, the Sacramento architecture firm of Starks & Flanders designed a new Federal Building and Post Office at 801 I Street. During the mid1930s, two more office buildings were added across N Street from the Capitol: the Public Works Building and the Department of Motor Vehicles (DMV) building, designed by George B.

MacDougal. In 1935, there was a movement to extend Capitol Park to 2nd Street between L and N streets using federal Public Works Administration (PWA) funds. Other federal money began filtering into Sacramento in the late 1930s as the country prepared to enter World War II, and in 1940 the State Planning Board and the Division of Architecture recommended construction of state buildings around Capitol park instead of to the west along Capitol Avenue.111

In the late 1940s, the California State Government began to increase its staff in order to respond to the post-World War II growth. The state took steps to prepare for a full-time government, developing mosquito abatement programs and installing air conditioning in its buildings.112 In 1947, the City Planning Commission recommended the creation of a Capitol Mall along which to develop state government buildings (see Post-World War II, Redevelopment, and Transportation Context). The Capitol Building was enlarged in the meantime.113 In 1949, the apse of the Capitol was removed and the East Annex was constructed to hold offices for the governor, lieutenant governor, legislators, and other state officials. The new five-story annex cost $7.25 million and took two years to complete.114 All the while, a discussion of a Capitol Mall project continued. In 1949, Southern California architects Richard Neutra and Robert Alexander studied the West End neighborhood (roughly the area west of the Capitol Building to the Sacramento River between I and R streets) to create one of the first urban redevelopment plans for the city. Although this plan was never realized, it received national recognition for its unique concepts to recover subterranean spaces abandoned when the City’s streets and sidewalks were raised as underground parking, and intensify commercial development around large courtyard spaces.115
In response, the City of Sacramento created a Civic Improvement District around Capitol Park and the mall and extended the district’s west boundary from 7th Street to the Sacramento River.116
Until the 1950s, all state buildings and major additions were constructed immediately around the Capitol and Capitol Park; however, the government continued to grow and development was no longer restricted to the vicinity around the Capitol. In 1953, a new Education Building on Capitol Mall was completed, construction of the Personnel Board and Employment buildings began, and the new Federal Office Building on Capitol Mall, designed by Sacramento architect Harry Devine, was nearing completion. The city’s redevelopment agency also planned to construct apartment buildings south of the mall and commercial development to the north (see PostWorld War II, Redevelopment, and Transportation Context).

During this time, the various government agencies employed 40 percent of non-farm workers in Sacramento—the greatest concentration of government employees in the state. Elsewhere in California, the percentage of non-farm workers employed by the government was closer to

111 “The California State Capitol Plan,” adopted by the Capitol Building and Planning Commission under Edmund G. Brown, Sacramento, 1960.
112 Avella, Sacramento: Indomitable City, 117.
113 “The California State Capitol Plan,” 1960.
114 Center for Sacramento History, Old Sacramento and Downtown, 40. 115 Thomas S. Hines, Richard Neutra and the Search for Modern Architecture: a Biography and History (Berkeley:

University of California Press, 1982), 230.
116 “The California State Capitol Plan,” 1960.

ENVIRONMENTAL RESOURCES

GENERAL PLAN TECHNICAL BACKGROUND REPORT 6.3-46 CITY OF SACRAMENTO seventeen percent. In the 1960s, Governor Edmund C. Brown reorganized the executive branch to create centralized departments. Jesse Unruh, Speaker of the California State Assembly, helped expand and modernize the state legislature. With the approval of Proposition A1 in 1966, a full-time California State Legislature was at last created, bringing a greater number of workers—and residents—to Sacramento.117

Redevelopment and the California Capitol Plan
The expansion of California State Government coincided largely with redevelopment efforts in Sacramento (see Post-World War II, Transportation and Redevelopment Context). In fact, the majority of redevelopment efforts were spurred by the presence of the State Government and a desire to present the city as a clean, beautiful, and well-planned State Capital. Efforts in Sacramento were part of a national movement of postwar urban renewal to clean up cities— especially downtown areas.118 The West End neighborhood, located between Tower Bridge on the Sacramento River and the Capitol, was one of the first areas slated for redevelopment. As presented in Architectural Forum in 1959, “Visualize first, one of the strongest and most stable cities in the nation that is also the Capital of the State of California. Visualize too, almost 200 acres of land extending from the existing Central Business District and the State Capital buildings to the Sacramento River to be wiped clean of almost all building and made available for new construction.”119

117 Avella, Sacramento: Indomitable City, 117.
118 Lizabeth Cohen, “Buying into Downtown Revival: The Centrality of Retail to Postwar Urban Renewal in American Cities, Academy of Political and Social Science, 611 The Politics of Consumptions/The Consumption of Politics (May 2007), 84-5.
119 Architectural Forum, 1959.

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Figure 19. Construction of the Employment Development Department (EDD) Building on September 26, 1954. The building is an example of modifications made to Sacramento’s original street grid to accommodate new, larger developments. [Center for Sacramento History, Ralph Shaw Collection, 1972/212/1578].

By 1960, the state occupied twenty-three publically owned buildings (including annexes), and nineteen leased buildings (including offices, special purpose buildings, and warehouses). The state owned 69.8 acres in central Sacramento that included Capitol Park, garages, parking lots, warehouses, and the Governor’s Mansion;120 note, this acreage may also include some property which later became part of the State Parks & Recreation system. Grouping the departments of State Government made it easier for staff to gather for meetings and exchange information.

However, as traffic increased in the city and offices became dispersed, the legislature desired a master plan for the Capitol and state government buildings. In July 1960, the State Legislature created the Capitol Building and Planning Commission, which created the first California State Capitol Plan later that year. The California State Capitol Plan was a physical plan that specified the location and design of buildings, forms, parks, plazas, pedestrian ways, drives, streets, and parking facilities. It focused on the area bound by L Street on the north, Q Street on the south, 7 th Street on the west, and 17th Street on the east. To provide greater design flexibility and to accommodate larger programs, the plan promoted the creation of seven superblocks, or pedestrian islands, by closing streets within the plan area to vehicular traffic. Purchase of land within the plan area was encouraged before implementation began and property values increased. The California State Capitol Plan promoted the removal of the State Office Building

120 “The California State Capital Plan,” 1960.

ENVIRONMENTAL RESOURCES

GENERAL PLAN TECHNICAL BACKGROUND REPORT 6.3-48 CITY OF SACRAMENTO and Library and Courts buildings in the Capitol Extension area.121 The California State Capitol Plan envisioned L Street from 7th to 17th Streets as a growing commercial district akin to San Francisco’s Union Square.122 Nearby, west of 7th Street between N and P Streets, the Capitol Towers project was completed in 1964.123 Capitol Towers assembled four blocks to create a ‘super block,’ closing public streets and alleys between the four blocks and demolishing everything on the parcels. Noted San Francisco architectural firm Wurstrer Bernardi & Evans, and landscape architect Lawrence Halprin were hired to create a residential complex of both towers and lower scale multi-family units in a park-like setting. Though some of the original designs were not realized and some modifications have occurred, the complex is relatively intact.124 In the 1970s, the deterioration of the Capitol building and the state government’s need for more space prompted discussion of demolishing the Capitol. Two towers were proposed on the same site as the existing Capitol. In 1974, this plan was struck down in favor of restoring the 1861 Capitol building.125 A major project to seismically strengthen the State Capitol was initiated in 1976. Renovation work undertaken to structurally reinforce the entire building—including the dome—cost $68 million and continued until 1982.126
In 1977, a second California State Capitol Plan was drafted to update the 1960 Capitol Plan. As the second Capitol Plan explained, the State had purchased lands south of L Street and demolished extant buildings to construct high-rise office buildings within park-like campus settings. The state legislature approved funding for the 1960 Capitol Plan, purchased ninety percent of the land and demolished many of the buildings, reducing the residential population downtown from 4,000 to about 1,000. Two office buildings, the Central Heating and Cooling Plant and the State Resources Building, were constructed in the 1960s. Additional cleared sites were used for surface parking lots. However, the election of Governor Ronald Reagan in 1967 and the change in administration caused the 1960 Capitol Plan building program to be curtailed.

Rather than build new state government buildings that consolidated governmental departments, the new administration encouraged the State to lease space from the private sector to meet state office needs. In the early 1970s, Reagan’s administration also centralized in Sacramento many state offices which had been regionally based throughout the state, relocating state employees to Sacramento—by 1976, the state was leasing 1,190,000 net square feet of office space at fifty-five office locations in Sacramento, including properties, such as the Julia Morgandesigned Public Market building, which often suffered unfortunate interior remodeling to accommodate the new offices. The 1977 Capitol Area Plan called for the consolidation of these offices in state-owned buildings and revisions to the 1960 Capitol Plan.127

121 “The California State Capital Plan,” 1960.
122 “The California State Capital Plan,” 1960, 20.
123 Ken Lastufka, “Redevelopment of Sacramento’s west End, 1950-1970: A Historical Overview with an Analysis of the Impact of Relocation,” (master’s thesis, California State University Sacramento, 1985). 124 David Gebhard, Robert Winter, and Eric Sandweiss, The Guide to Architecture in San Francisco and Northern California (Layton, UT: Gibbs-Smith, 1985), 413. 125 California State Capitol Museum, California State Capitol History part III, “Growth: Rebuild or Restore?” accessed 1 April 2014, http://capitolmuseum.ca.gov/virtualtour.aspx?Content1=1482&content2=1466&content3=388. 126 Center for Sacramento History, Old Sacramento and Downtown, 40. 127 “The California State Capital Plan,” 1977, adopted by the Capitol Building and Planning Commission under Edmund G. Brown, Jr. Sacramento.

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Figure 20. The map above designates exiting open space, housing, office, and parking areas located immediately around the Capitol Building and Park.

Source: Capitol Area Plan (1977), 7.

Under the 1977 Capitol Plan, the Department of General Services (DGS) was appointed as the advisory committee of the Capital Area Plan. The new plan sought to clarify the relationship of the state to the local city government, coordinate planning efforts, and ensure that the Capitol Area received public services. The state recognized that, as a “major landholder and employer in Sacramento, it had an obligation to ensure that developmental actions be of the highest quality.”128

Since 1977, DGS and the Capitol Area Development Authority, a joint powers authority between the state of California and the City of Sacramento, have administered the Capitol Area Plan to guide smart growth development of the Capitol Area.129 The Capitol Area Development Authority (CADA) was founded in 1978 to “implement the residential and neighborhood commercial objectives of the State Capitol Plan. This plan, adopted in 1977 and updated in 1997, was the forerunner of the smart growth movement.”130 The organization operates a

128 “The California State Capital Plan,” 1977
129 “Capitol Area Plan Progress Report,” (January. 2012), accessed 11 December 2012, http://www.documents.dgs.ca.gov/Legi/Publications/2012LegislativeReports/CapAreaProgress2 012.pdf.
130 Capitol Area Development Authority, “The CADA Story,” (June 2011), accessed 11 December 2012, http://www.cadanet.org/wp-content/uploads/2011/06/onlineVersion.pdf.

ENVIRONMENTAL RESOURCES

GENERAL PLAN TECHNICAL BACKGROUND REPORT 6.3-50 CITY OF SACRAMENTO business model that closely parallels a private real estate management and development company. CADA responds to government mandates, including rebuilding the areas demolished by the 1960 State Capitol Office campus plan and rebuilding a key section of the R Street Corridor, a former industrial neighborhood. Operational expenses of CADA are paid for by the management of its properties and development opportunities. Some of CADA’s goals are to attract workers back to the city center by creating mixed uses in the Capitol Area that include residential units and services for residents. At least twenty-five percent of the residential units it creates or manages are affordable to low- and very low-income households. CADA financed construction of the State Office of Buildings and Grounds at 13th and O Streets as well as the adaptive reuse of the Capital Athletic Club at 8th and O Streets.131

State Government Today
The California State Government remains Sacramento’s largest employer today. Following the economic recession of the late 2000s, the decline of the dollar, and the drain on resources as a result of the Iraq War, California’s budget deficit has slowed the growth of the number of state jobs, which in turn inhibits expansion of state government facilities and programs in the region.

As of December 2007, the California State Government owned and occupied nearly 10,000,000 square feet within Sacramento’s downtown, in addition to more than 3,000,000 square feet that was under construction at that time.132
The current focus on sustainable practices will likely shape development in the State Capital, and the global movement toward sustainability has profoundly affected California and Sacramento public policy. Long-range planning programs include the State Green Building Initiative, the Sacramento Area of Council Governments regional Blueprint Project, and the City of Sacramento’s General Plan, Climate Action Plan, and Sustainability Master Plan, which will maximize the use of existing infrastructure and explore sustainable development policies.

Historic Themes and Associated Property Types
The following section summarizes important themes in the history of state government in Sacramento and identifies property types that reflect these themes. Significance and integrity discussions follow each property type so that additional resources relating to the history of state government may be evaluated in the field. The significance discussion describes the criteria for which a resource may be historically significant and the integrity narrative provides guidance to determine whether the resource retains sufficient integrity to convey its historic significance.

The primary historic themes and events which characterize the history of state government in Sacramento include:
 State governmental buildings followed developmental trends in the city: businesses and services migrated from the Sacramento River Embarcadero to structures in immediate proximity to the river and were subsequently relocated to more permanent, purpose-built structures.
 Building infrastructure (e.g. flood control plan) and maintaining services (e.g. fire department) were crucial for Sacramento to remain the State Capital.  Development of a Capitol Area – concentrating state office buildings around the State Capitol building, Capitol Park and, later, Capitol Mall, and providing new residential communities – driven by urban planning concepts including the City Beautiful movement,

131 Capitol Area Development Authority, “The CADA Story.” 132 City of Sacramento, Sacramento Railyards Specific Plan, (EIP Associates: Sacramento, CA: 2007), 15.

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mid-century redevelopment, and more recent sustainable development efforts.

Identification
For the purposes of determining eligibility for historic designation, two categories of resource types have been developed based on the previous discussion of property types. Each category includes certain specific types of resources as listed below:

1. Institutional: This category includes all resources associated with the California State Capitol Building and Capitol Park, early twentieth-century civic buildings designed to complement the Capitol, 1930s office and departmental buildings, and development site planning for office and departmental buildings or complexes constructed as part of the 1960 Capitol Plan.

2. Government-Sponsored Development & Related Projects: This category includes the City’s flood control/street-raising efforts undertaken to ensure the State Capitol remained in Sacramento, and the development of Capitol Mall and related new construction of major office buildings along Capitol Mall, as well as various projects facilitated by CADA.

Institutional Buildings
Properties associated with the California State Government in Sacramento are primarily institutional buildings that are concentrated in the Capitol Area and downtown. One such example is the B.F. Hastings building is Old Sacramento. Throughout its history, the building housed the state Supreme Court, offices for telegraph companies, merchants, and Wells Fargo & Company. Today, the building is administered by the California Department of Parks and Recreation and houses the Wells Fargo History Museum.133 As was the tradition in many American cities over the course of the nineteenth and twentieth centuries, civic buildings (whether representing city, state, or federal governments) were commonly designed on a grand scale in Classical Revival, specifically Neoclassical, and Beaux Arts styles. The Classical Revival architectural movement, most popular in the United States between 1790 and 1860, was based on the use of Roman and Greek forms.134 Classical Revival styles were typically used for public buildings. Neoclassical buildings were characterized by front gable roofs with pediments supported by columns, domed roofs, and symmetrical facades, The Beaux Arts Style, most common between 1880 and 1930, gained prominence at the 1893 World’s Fair in Chicago and became synonymous with the “City Beautiful” movement which promoted modernization and the improved sanitation through the beautification of cities. The Beaux Arts style was a grandiose interpretation of Classical Revival architectural forms and was characterized by flat or low-pitched roofs, full-height, paired columns, and typically included garlands, quoins, or other decorative detailing. Both the Classical Revival and Beaux Arts styles were used to convey civic and corporate wealth and power.

State government buildings in Sacramento reflect this trend to use Neoclassical and Beaux Arts architectural styles for public buildings. Most notably, the California State Capitol Building (completed in 1874) is demonstrative of the Neoclassical Style. Other classically-inspired institutional buildings that are part of the Capitol Area complex include the Library and Courts Building located at 914 Capitol Mall and the Jesse Unruh Building (originally known as Office Building No. 1) located at 915 Capitol Mall, both of which were designed by the architectural firm

133 “B.F. Hastings Building,” California State Railroad Museum (2011), accessed 1 April 2014, http://www.csrmf.org/visitor-information/other-california-state-park-sattractions-in-old-sacramento/bf-hastings-building. 134 Cyril M. Harris, Illustrated Dictionary of Historic Architecture ( New York: Dover Publications, 1977).

ENVIRONMENTAL RESOURCES

GENERAL PLAN TECHNICAL BACKGROUND REPORT 6.3-52 CITY OF SACRAMENTO Weeks & Day, were completed in 1928. Other institutional properties associated with the California State Government may include office and departmental buildings constructed in the Art Deco/Moderne style, such as the Public Works Building and the Department of Motor Vehicles (DMV) buildings designed by George B. MacDougal along the south side of Capitol Park in the 1930s. Institutional properties associated with the state government also include buildings constructed along Capitol Mall as part of the 1960 Capitol Plan. Other significant office buildings developed along Capitol Mall after its 1960s creation include the Harry Devinedesigned, International Style, Federal Courthouse and larger structures built for office and financial firm headquarters.

Significance
Institutional buildings may be found eligible under National Register Criteria A, B, and C; California Register Criteria 1, 2, and 3; and Sacramento Register Criteria i, ii, iii, iv and v. As the places that personify the authority of the state government and house its officials and personnel, institutional properties are typically large and iconic and are often grouped geographically.

Properties eligible for listing in the National Register under Criterion A, California Register Criterion 1, or Sacramento Register criteria i (Event) should be at least 50-years-old or older and will have a close association with the California State Government as an institution or be associated with an important historical event or pattern relating to the development of the state government in Sacramento or California.

For properties to be listed under National Register Criterion B, California Register Criterion 2, or Sacramento Register Criterion ii (Person), institutional buildings should be at least 50-years-old and should be closely associated with a significant person or persons associated with the California State Government.

For properties to be listed under National Register Criterion C, California Register Criterion 3, or Sacramento Register Criterion iii (Design/Construction), institutional buildings should be at least 50 years old, and should “represent the work of a master or possess high artistic values” and may also demonstrate distinctive characteristics of a “type, period, region, or period of construction.”
Integrity
Of the seven aspects of integrity, institutional properties should retain, in order of importance:
design, materials, workmanship, association, location, setting, and feeling; please note for local evaluations, the Sacramento Register does not address integrity of “feeling.” Institutional buildings typically express the values of the governmental administration or key individuals that built them and therefore it is most important for the property to retain the bulk of its physical characteristics, especially its original design and materials. Institutional buildings are typically more elaborate than other types of state government-related properties and often embody unique examples of workmanship, which should be retained. Association with the property’s original builder/owner and a sense of the era of construction are also important to convey the significance of a resource. Location and setting are also important aspects, providing the physical and functional contexts for the resource.

Government-Sponsored Development Projects
Capitol Mall, which was first planned in the 1940s and developed as part of the 1960 Capitol Plan, is representative often-popular mid-20th century planning and design principles. It is characterized by wide boulevards, lighting, promenades, plazas, and multi-story towers developed on large consolidated parcels within a landscaped setting, and often wholesale CULTURAL RESOURCES: APPENDIX

CITY OF SACRAMENTO 6.3-53 GENERAL PLAN TECHNICAL BACKGROUND REPORT

removal of older buildings on the blocks along with the original grid streets. Properties in the area developed or constructed 50 or more years ago may be eligible for listing in the Sacramento, California, and National Registers. Therefore, the historic significance of the area should be evaluated.

Resources associated with the early 1970s Capitol Area Plan revisions, guided by then State Architect Sim van der Ryn and planner Peter Calthorpe were considered exceptionally significant and should be evaluated once the resources attain the fifty-years of age threshold.

Numerous California State Government-sponsored building and development projects were realized after the establishment of the Capitol Area Development Authority (CADA) in 1978.

Though many of these projects entailed new residential and commercial construction, several entailed the rehabilitation of historic buildings. These include the adaptive reuse of the Capital Athletic Club located at 8th and O Streets; the relocation of four Victorian-era residences to an infill site at 14th and Q Streets; the rehabilitation of single-family residence at 17th and O Streets; and the rehabilitation of the historic Enos Grocery Store at 1500 Q Street.135 Significance
Government-sponsored development projects may be found eligible under National Register Criteria A, B, and C; California Register Criteria 1, 2, and 3; and Sacramento Register criteria i, ii, iii, or iv. The built legacy of the California State Government is not limited to its institutional buildings. Rather, the state government has sponsored, developed, and implemented many development, land assembly, streetscape and construction projects throughout Sacramento, many of which were realized since the 1940s. Properties eligible for listing in the National Register under Criterion A, California Register Criterion 1, or Sacramento Register under Criterion i (Event) should be at least 50 years of age and will have a close association with the California State Government as an institution or be associated with an important historical event or development pattern relating to the development of the state government or state governmental planning and land assembly projects.

For properties to be listed under National Register Criterion B, California Register Criterion 2, or Sacramento Register criterion ii (Person), government-sponsored building projects should be at least 50 years of age and should be closely associated with a significant person or persons associated with the California State Government or state planning and development efforts.

For properties to be listed under National Register Criterion C, California Register Criterion 3, or Sacramento Register criterion iii (design/construction), government-sponsored building projects should be at least 50 years of age and should “represent the work of a master or possess high artistic values” and may also demonstrate distinctive characteristics of a “type, period, or method of construction”
Integrity
In regard to government-sponsored building projects, the seven aspects of integrity in order of importance should be: design, workmanship, materials, association, location, setting, and feeling; please note for local evaluations, the Sacramento Register does not address integrity of “feeling.” Because the historic character of government-sponsored development projects is often the result of a combination of aesthetic treatment and planning principles, it is important

135 California Area Development Authority, “The CADA Story, ”

ENVIRONMENTAL RESOURCES

GENERAL PLAN TECHNICAL BACKGROUND REPORT 6.3-54 CITY OF SACRAMENTO that enough of the original design, including massing, spatial relationships, and style, remain intact in order to convey how the property or properties were used. Materials and workmanship might be considered as slightly less important because government-sponsored building projects may be subject to budgetary constraints, and the focus may be more on functionality and visual cohesion than on craftsmanship. Integrity of association and feeling are ranked next in importance because the building or complex must retain enough overall integrity to express its significance within the framework of the state government context. Since governmentsponsored development projects may have been constructed as part of a complex, as infill, or the consolidation of land and streets, it is crucial that these resources relate to both immediate and broader contexts, and integrity of location and setting should be retained for this reason.  RAILROAD CONTEXT STATEMENT
“As we pass the watermark of 150 years of statehood here in California, keep in mind the men and women who saw not gold, but iron rails stretching into the distance…Manifest Destiny and an irrepressible American spirit provided the dream; California was the place; and the Iron Horse made it a reality.”136
Beginning in the mid-nineteenth century, first with water transportation and then with overland rail transportation, Sacramento developed into a major transportation hub in California and the entire West Coast, especially after becoming the western terminus of the first transcontinental railroad in 1869.137 Through opportunistic and politically-savvy business efforts, especially of the men who came to be called “The Big Four,” both freight and passenger railroad industries thrived, providing employment to generations of Sacramentans; at its peak, the Southern Pacific’s Central Shops north of downtown employed nearly one-third of Sacramento.138 The railroads garnered national attention for California, the region and the city, inviting outsiders to experience the west and the Capital City. Through the competing interests of various railroads, several railroad depots, industrial yards, and infrastructure such as rail corridors, railroad levees and bridges were constructed. Thus, the advent of the railroad was highly influential in shaping Sacramento’s built environment. Some of the important themes which characterize the history of railroads in Sacramento include the railroad depots and shops complexes, development of business, industrial and warehouse areas within the city as a result of railroad construction, the expansion of railroad service to enhance Sacramento’s role relative to California agricultural and industrial facilities, electrification of the railways, and the reuse of railroad tracks, rail corridors and infrastructure, including the railroad levees and bridges.

Early Modes of Transportation
In the pioneer days of California, travelers reached Sacramento and its environs through a variety of modes of transportation via land and river. The Sacramento River became a thriving conduit used by numerous vessels for trading, dredging, and the transportation of passengers and goods. The first steam boat to navigate the river from San Francisco, the Sitka, arrived in Sacramento in 1847. Approximately 250,000 tons of goods were shipped on the river to

136 “Rails to the Pacific.” California State Railroad Museum (2011), accessed 4 January 2013, http://www.csrmf.org/explore-and-learn/railroad-history/the-transcontinental-railroad/rails-to-the-pacific. 137 Kyle K. Wyatt, “Significant Dates: Transcontinental Completions,” Central Pacific Railroad Photographic History Museum. California State Railroad Museum, accessed 23 December 2013, http://cprr.org/Museum/Transcon_Dates.html.
138 National Park Service, Southern Pacific, Sacramento Shops (Central Pacific Railroad Company, Sacramento Shops). HAER CA-303, 2001.

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Sacramento at the height of the Gold Rush in 1851, and this number increased to 415,000 tons in 1853.

Land transportation was the other principal means of transport to Sacramento. In 1849, the area’s first coach and wagon line moved passengers and freight between the city and Mormon Island, a mining boom town, the remnants of which are now located under Folsom Lake. The number and extent of stage and freight lines expanded rapidly, and by 1861 the California Stage Company offered service to Sacramento from as far away as Portland, Oregon.139 However, none of these early modes of transportation would become more inextricably associated with the development of Sacramento than the railroad.

The Men Who Built the Railroads
Caucasian, Irish immigrants primarily made up the railroad workforce in the 1850s, during the construction of the Sacramento Valley Railroad. When these men abandoned the railroad to pursue mining, or threatened to strike and demanded higher pay, Chinese laborers, also exclusively men, were hired to replace them.140 The Central Pacific, which strove to become the first transcontinental railroad, began hiring laborers in 1865. Chinese workers made up nearly 90% of their workforce; Irish immigrants made up the remaining 10%. Although the numbers are approximate because many Chinese laborers were unrecorded, the workforce has been estimated to be around 10,000 laborers during the construction of the transcontinental line.

Conditions were extremely treacherous: workers used 19th century technology to remove large granite rock faces in the Sierra Nevada and used explosives to create tunnels. Leland Stanford declared that without Chinese laborers “it would be impossible to complete the western portion of this great national enterprise, within the time required by Acts of Congress.”141

After the Transcontinental Railroad was completed, many of the Chinese laborers moved on to other jobs working on rail lines; others returned to China. Some settled in California and sent for their families to join them. Although state laws prohibited the Chinese from owning property, Chinese railroad workers settling in Sacramento established a Chinatown along the I Street banks of Sutter Lake, known as “China Slough.” Sacramento’s Chinatown, which was located between 2nd and 6th Streets on I Street, included markets, a store, a bar, a boarding house, and gambling houses. When Chinese railroad workers settled in Sacramento, they continued to congregate along the I Street banks. By 1909, however, the city and Southern Pacific Railroad expelled Chinese families from China Slough. After the population was relocated, this portion of I Street sat for over ten years as an open sandlot, serving as a streetcar loop and automobile parking lot.142

139 Thor Severson, Sacramento, An Illustrated History: 1839-1874, From Sutter’s Fort to Capital City (San Francisco:

California Historical Society, 1973), 166-70.
140 Dawn Emord and David Bushong, “The Workers of the Central Pacific,” The Transcontinental Railroad: Different Faces Behind “The Work of the Age, accessed 10 December 2012, http://bushong.net/dawn/about/college/ids100/workers.shtml. 141 Leland Stanford,. Central Pacific Railroad Statement Made to the President of the United States, and Secretary of the Interior, on the Progress of the Work. 10 October 1865, accessed December 2013, http://cprr.org/Museum/Chinese.html.
142 George Kraus, “Chinese Laborers and the Construction of the Central Pacific,” Utah Historical Quarterly 37, no. 1 (Winter 1969), 57, accessed 1 April 2012,
http://utah.ptfs.com/awweb/guest.jsp?smd=1&cl=all_lib&lb_document_id=34650.

ENVIRONMENTAL RESOURCES

GENERAL PLAN TECHNICAL BACKGROUND REPORT 6.3-56 CITY OF SACRAMENTO Figure 21 The buildings on the north side of I Street, adjacent to Sutter Lake were demolished when “China Slough” was filled to make way for the Southern Pacific Railyard. The buildings on the south side of I Street were demolished during redevelopment of the West End in the 1950s.

Source: Lawrence Tom, Brian Tom and the Chinese American Museum of Northern California. 2010. Images of America, Sacramento’s Chinatown. 1873 Illustration of Chinatown. p. 18.

Beginning around 1910, Mexican immigrants arrived in Sacramento County to find work in the booming railroad and agriculture industries. Because of the proximity to the Southern Pacific railyard and several major canneries, sizeable Mexican populations developed in the West End and Alkali Flat neighborhoods, and by the early 1940s, there were approximately 2,000 Latinos residing in Sacramento.143 At the onset of the Second World War, Congress recognized the shortage of American laborers and arranged for a sponsorship program of Mexican laborers with the Mexican government. It was known as the Bracero (Spanish for “strong arm”) Program.

Two separate labor programs were initiated: a railroad program that operated from 1942 until 1945 and an agriculture program that was extended many times by supplemental legislation until 1964, though the agreements covered laborers until 1967.144 The total number of immigrant laborers steadily increased through the 1940s, when nearly half of all Sacramento cannery workers were from Mexico.145 By the end of the Bracero Program in 1964, millions of Mexicans had immigrated to the United States.

143 City of Sacramento, Alkali Flat/Mansion Flats Strategic Neighborhood Action Plan (accepted by City Council 23 August 2005), accessed 4 January 2013, http://www.cityofsacramento.org/dsd/planning/longrange/snaps/documents/Final_SNAP_08_30_05.pdf, 7. 144 Armando Navarro, Mexicano Political Experience in Occupied Aztlan: Struggles and Change (Walnut Creek, CA:

Alta Mira Press, 2005), 375.
145 Steven M. Avella, Sacramento: Indomitable City (San Francisco: Arcadia Publishing, 2005), 108.

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CITY OF SACRAMENTO 6.3-57 GENERAL PLAN TECHNICAL BACKGROUND REPORT

The Railroads: Developed through Competition
Railroad companies began to form in Sacramento and San Francisco which competed for rightof-ways and financial support. In Sacramento, the Sacramento Railroad and Sacramento Valley Railroad companies vied to establish rail lines through the new city. Formed in 1853 and headed by prominent Sacramentans Peter H. Burnett and James Ben Ali Haggin, the Sacramento Railroad was promoted as a locally-run railroad company with Sacramento’s best interests at stake. Although board members of the rival Sacramento Valley Railroad lived in Sacramento and included Henry E. Robinson and William H. Watson, its financial backers were more strongly associated with projects in San Francisco.146 Sacramento Valley Railroad board member Charles Lincoln Wilson, who owned several steamship companies, toll roads, and bridges in San Francisco, led this railroad’s investors.

Figure 22. This map depicts the city limits as of 1873, in addition to Sacramento’s early rail lines. The Sacramento Valley Railroad enters the city at R Street. The Central Pacific Railroad, part of the Transcontinental Railroad (later operated by Southern Pacific) enters the city between its northern boundary and the American River. A City Railroad travels the distance of the city . The map also shows the old and new channels of the American River that resulted from changing the confluence of the Sacramento and American Rivers.

Map of the City of Sacramento. The Capitol of California. 1873, J.R. Ray, City Surveyor. [Center for Sacramento History, Eleanor McClatchy Collection, 1982/004/0417].

The Sacramento City Council granted to the Sacramento Railroad the route along A Street at the city’s northern boundary, which led to the city center. R Street was granted as the Sacramento Valley Railroad’s right-of-way. Both lines were essentially equidistant from the city’s center at that time, J and K Streets. Wilson brought engineer Theodore Judah to California to

146 Wendell Huffman, The Placerville Branch of the Southern Pacific: A History of the Sacramento Valley and the Placerville & Sacramento Valley Railroads. Unpublished draft. (1998).

ENVIRONMENTAL RESOURCES

GENERAL PLAN TECHNICAL BACKGROUND REPORT 6.3-58 CITY OF SACRAMENTO survey the Sacramento Valley Railroad route, while Wilson raised money for the project and negotiated with the firm of Robinson, Seymour, and Company to construct the road bed and lay track. California’s first steam railroad and the first “common carrier” railroad, the Sacramento Valley Railroad, opened in 1856 to great fanfare. The twenty-two mile route ran between Sacramento and Folsom.

Sacramento’s rapidly developing overland transportation system contributed greatly to its bid to become the State’s Capital city in the mid-1850s. Its position at the juncture of the Sacramento River and the new railroad was economically advantageous and its business district offered amenities for State legislators who would relocate to the area. The city earmarked multiple city blocks for the construction of a new Capitol building and had recently completed a new brick courthouse and state printing facility. In light of the fires that had ravaged the city in recent years, Sacramento also offered to construct a fire-proof warehouse in which to archive state documents.147
To supplement the city’s early levee-building efforts, the City Council required railroad companies to construct and maintain levees on the right-of-ways granted through Sacramento; however, this program was met with varying success.148 The city granted railroad right-of-ways in areas where the city was most vulnerable to flooding from the American and Sacramento Rivers. Thus, when the Sacramento and the Sacramento Valley Railroads—the first railroad companies in Sacramento—were granted routes, these routes were well outside the northern and southern boundaries of Sacramento’s business district. In accordance with this ordinance, the Sacramento Valley Railroad constructed a levee on R Street prior to the establishment of its tracks. However, the Sacramento Railroad proposed for the northern boundary of the city was never constructed. In 1861, December storms caused the American River to breach the city’s levee at the northern boundary of Sacramento and the R Street levee trapped the floodwater within the downtown area. The railroad company was forced to remove a portion of the levee to allow the floodwater to escape.149

147 Nathan Hallam, “The Historical Evaluation of Sacramento’s Central City Street Grid,” Thesis submitted in partial satisfaction of the requirements for the degree of Master of Arts in Public History at the University of California at Sacramento (2008).
148 Huffman, The Placerville Branch of the Southern Pacific. 149 “1862 Sacramento Flood view From the Levee at R Street,” 1862, Center for Sacramento History, Eugene Hepting Collection.

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CITY OF SACRAMENTO 6.3-59 GENERAL PLAN TECHNICAL BACKGROUND REPORT

Figure 23. Map depicting the railroad lines through Sacramento. The original Central Pacific Transcontinental line (labeled Southern Pacific because they began leasing the line from the Central Pacific in the 1880s) approaches the from the northeast, crossing the American River.

Source: USGS Historical Topographical Map Collection. Brighton, CA, 1911-1947.

The following section provides an overview the railroad companies that competed within the City of Sacramento.

Sacramento Valley Railroad

ENVIRONMENTAL RESOURCES

GENERAL PLAN TECHNICAL BACKGROUND REPORT 6.3-60 CITY OF SACRAMENTO The Sacramento Valley Railroad (often abbreviated as SVRR) opened for business in 1856 and was arguably, the first steam railroad and first common carrier railroad west of the Mississippi River. An open-sided freight depot with a ticket counter was constructed near Front and L Streets, and the track ran south along the river, and then eastward along R Street for 22 miles to the terminus in Folsom (formerly known as Granite City).150 The route was surveyed by engineer Theodore Judah, who had been lured to California from the East Coast by the prospect of, one day, completing the first transcontinental railroad Figure 24. This illustration appeared in the January 1, 1856 issue of the Pictorial Union and depicts the initial run of the Sacramento Valley Railroad on August 17, 1855. The SVRR was the first railroad west of the Mississippi River, running between downtown Sacramento and Folsom.
[Center for Sacramento History, David W. Joslyn Collection, 1855/08/17].

Central Pacific Railroad
Following the completion of the Sacramento Valley Railroad, Judah traveled to Washington, D.C. in an attempt to gain support from legislators for a transcontinental railroad. The immediacy of the Civil War caused Congress to be less responsive than Judah anticipated.

Meanwhile, he published detailed studies of potential routes over the Sierra Nevada for what he named the Central Pacific Railroad, though during this time he was removed from his position as chief engineer of the Sacramento Valley Railroad because of conflicting interests. He eventually found investors in Sacramento to finance the endeavor. These included four businessmen who came to be known collectively as the “Big Four”: Collis P. Huntington, Mark Hopkins, Charles Crocker, and Leland Stanford. The Central Pacific Railroad (often abbreviated as CPRR or CP) was incorporated in 1861, and under the Pacific Railroad Act of 1862, signed by former railroad attorney and then President of the United States, Abraham Lincoln, the company was ordered to construct the western portion of the transcontinental railroad.151

150 “The Railroad Stations of Sacramento,” California State Railroad Museum (2011), accessed 10 December 2012, http://www.csrmf.org/visitor-information/other-california-state-park-sattractions-in-old-sacramento/central-pacificrailroad-passenger-station/the-railroad-stations-of-sacramento. 151 Library of Congress, “Pacific Railway Act,” Primary Documents in American History,” 30 July 2010, accessed 23 December 2013, http://www.loc.gov/rr/program/bib/ourdocs/PacificRail.html.

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CITY OF SACRAMENTO 6.3-61 GENERAL PLAN TECHNICAL BACKGROUND REPORT

The groundbreaking ceremony for the Central Pacific Railroad occurred on January 8, 1863, at the foot of K Street near the waterfront. This momentous event, which was made possible by Theodore Judah and the Big Four, is interpreted in a mural painted around 1929 by John A.

MacQuarrie located in the waiting room of the Southern Pacific’s extant passenger depot on I Street. The Central Pacific’s (later Southern Pacific) railroad shops were initially built on 20 acres of landfill in Sutter Slough (also known as Lake Sutter or China Slough), which was roughly bounded by G Street to the north, 3rd Street to the east, I Street to the south, and Front Street to the west. Construction of freight and passenger depots on the waterfront between I and K Streets followed, and the first passenger train ran in April 1864.152 Over the coming years, the operations were enlarged to include a new passenger depot, fences, a refreshment stand, a telegraph office, and a baggage room.153
During the 1860s, the Central Pacific purchased competing railroad companies, including the Sacramento Valley Railroad in 1865 and the original Western Pacific Railroad (the first of two companies to use that name) in 1867, which were incorporated into the Central Pacific’s expanding rail network in Northern California. The Central Pacific line ran out of Sacramento to the northeast and joined with the Union Pacific Railroad at Promontory, Utah, in May 1869 to complete the First Transcontinental Railroad.154 In 1876, the Central Pacific purchased the California Pacific Railroad (often abbreviated as Cal-P), which ran trains between Sacramento and Vallejo and a ferryboat service between Vallejo and San Francisco.155 In 1870, the Central Pacific completed construction of the world’s first permanent hospital reserved for the care of railroad employees. The Central Pacific Railroad Hospital was located at the southwest corner of 13th and D Streets and occupied one quarter of the block. The fourstory building could accommodate 125 patients.156

Southern Pacific Railroad
While the Central Pacific was being constructed, its owners, the Big Four, purchased another railroad, the Southern Pacific Railroad (often abbreviated as SPRR, SP, or Espee) in 1868. The Southern Pacific was established in 1865 as a transcontinental railroad to connect Texas and California. By 1870, the operations of the Southern Pacific and Central Pacific railroads were combined.

152 Severson, Sacramento, An Illustrated History, 176.
153 “The Railroad Stations of Sacramento,” California State Railroad Museum. 154 Severson, Sacramento, An Illustrated History, 179-80. 155 Roy J. Jones, “The Old Central Pacific Hospital,” Central Pacific Railroad Photographic History Museum, accessed 10 December 2012, http://cprr.org/Museum/CPRR_Hospital.html. 156 Jones, “The Old Central Pacific Hospital.”

ENVIRONMENTAL RESOURCES

GENERAL PLAN TECHNICAL BACKGROUND REPORT 6.3-62 CITY OF SACRAMENTO Figure 25. 1895 map of the shops of the Southern Pacific Railroad. The former depot is to the west of Lake Sutter. [Center for Sacramento History, City of Sacramento Collection1 1985/026/0001].

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CITY OF SACRAMENTO 6.3-63 GENERAL PLAN TECHNICAL BACKGROUND REPORT

Figure 26. Photograph of the Southern Pacific Railroad shops circa 1940s. [Center for Sacramento History, Jeff Redman Collection, 1997/028/0041].

To support the newly combined company, a rail yard shops area was constructed in which to maintain tools and machines, and to design and manufacture locomotives and other rail cars.157 The Central and Southern Pacific Company filled in a portion of what remained of Sutter Slough and increased the size of its expansive railyard and shops to nearly 50 acres.158 Beginning in 1867, the first permanent railyard buildings were constructed in the Central Shops, which formed the nucleus of the railroad operations. These buildings included the Roundhouse, Car Shop and Planing Mill, Machine Shop, Blacksmith Shop, and Paint Shop. Their location on the bank of Sutter Lake entailed substantial and deeply dug foundations. The Central Shops expanded to the south in a strip along the north side of the tracks. Other than the Roundhouse, which was demolished in the 1950s, the early Central Shops buildings still stand.159

157 Gordon Chappell, “The Sacramento Locomotive Works of the Central Pacific and Southern Pacific Railroads, 1864-1999,” Cultural Resources Management 22, no. 10 (1999), accessed 18 December 2012, http://crm.cr.nps.gov/archive/22-10/22-10-20.pdf.
158 Dougherty, “Southern Pacific, Sacramento Shops (Central Pacific Railroad Company, Sacramento Shops),” (2001) HAER Report, CA-303.
159 City of Sacramento. Sacramento Railyards Specific Plan Draft Environmental Impact Report, August 2007.

ENVIRONMENTAL RESOURCES

GENERAL PLAN TECHNICAL BACKGROUND REPORT 6.3-64 CITY OF SACRAMENTO As Sacramento became an important transportation hub, and there was a need for a proper depot to accommodate the large numbers of people arriving in the city. A Gothic Revival-style depot known locally as Arcade Station was constructed there in 1879 (see Figure 7); however, this building was replaced by the present Southern Pacific Passenger Depot, opened in 1926.160 Figure 27. The Central Pacific Depot, located on G Street between 2nd and 3rd Streets, was replaced by the Southern Pacific Depot in 1926.
[Center for Sacramento History, A.R. Phillips Jr. Collection, 1976/033/0001].

By 1910, the powerful and pervasive Southern Pacific Railroad employed one third of the jobs available in Sacramento.161 Workers were usually hired locally, and the railroad frequently employed families.162 The railroad shop workers lived throughout the entire city, including the soon to be annexed suburbs like Oak Park, as well as in the Alkali Flat neighborhood immediately east of the Shops complex and also in Labor Market Area between Front and 6th Streets and between I Street and the M/N Alley, which was home to farm and factory laborers, transients and homeless, as well as railroad employees.

Several bridges for horse-drawn vehicles had been constructed over the Sacramento River since the 1850s (including two wooden bridges an earlier railroad bridge constructed by the Central Pacific), but in 1911, the Southern Pacific constructed a new steel railroad bridge over the Sacramento River at I Street to replace the former wooden truss that carried highway and

160 William Burg, Sacramento’s K Street (Charleston, SC: The History Press, 2012), 54. 161 “Timeline,” Sacramento History Online, accessed 10 December 2012, http://www.sacramentohistory.org/resources_timeline.html. 162 Dougherty , “Southern Pacific Sacramento Shops,” HAER Report.

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CITY OF SACRAMENTO 6.3-65 GENERAL PLAN TECHNICAL BACKGROUND REPORT

railroad traffic.163 The so-called I Street Bridge (extant) is a double-decker swing bridge constructed entirely of steel. Since the first train crossing on April 12, 1912, the upper deck of the bridge has been open to automobile traffic and the lower deck has always been used by trains.164

Figure 28. The I Street (foreground) and Tower (background) Bridges pictured in December 1955. [Center for Sacramento History, Frank Christy Collection, 1998/722/0272].

163 National Park Service, “I Street Bridge,” National Register of Historic Places Nomination Form, prepared by John W. Snyder. (February 1981).
164 Bill Lindelof, “Sacramento’s I Street Bridge Celebrates 100 Years,” Sacramento Bee, 4 May 2012, accessed 10 December 2012, http://www.sacbee.com/2012/05/04/4461242/sacramentos-i-street-bridgecelebrates.html.

ENVIRONMENTAL RESOURCES

GENERAL PLAN TECHNICAL BACKGROUND REPORT 6.3-66 CITY OF SACRAMENTO Figure 29. Southern Pacific Depot at 401 I Street circa 1925. [Center for Sacramento History, Jeff Redman Collection, 1997/028/046].

As early as 1910, the Southern Pacific planned to replace the outmoded Arcade Station with a new fashionable passenger depot intended to be “one of the finest stations on the [West] Coast.”165 The timing of this decision likely relates to the arrival in Sacramento of the competing Western Pacific Railroad and the construction of its elegant passenger depot in 1909 (extant and described below). Although the final grading and filling of Sutter Slough were completed by 1919, architectural plans for the Southern Pacific’s new depot were not prepared until 1924, due to a series of delays including the onset of the First World War. The (extant) depot was designed in a Mediterranean Revival style by the architectural firm of Bliss & Faville and was constructed by general contractors Davidson & Nicholsen, both firms from San Francisco (see Figure 9). The building’s design was published in several national magazines and its completion was celebrated locally with much fanfare. In 1926, the year the depot was completed at 401 I Street, sixty-four (64) passenger trains carrying an average of 4,500 passengers and twenty-two (22) freight trains stopped at the new depot each day.166 Traffic through the new depot was only matched during the movement of troops during World War II.

165 The Architect and Engineer of California 23, no. 2 (December 1910), 100. 166 National Park Service, “Southern Pacific Railroad Company’s Sacramento Depot,” National Register of Historic Places Nomination Form (1975), accessed 13 December 2012, http://pdfhost.focus.nps.gov/docs/NRHP/Text/75000457.pdf.

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CITY OF SACRAMENTO 6.3-67 GENERAL PLAN TECHNICAL BACKGROUND REPORT

Western Pacific Railroad
The Western Pacific Railroad (often abbreviated as WPRR or WP)—the second company in history to use that name—was established in 1903 as a new transcontinental line and arrived in Sacramento in 1907, effectively disrupting the Southern Pacific’s monopoly over rail transportation to and from the state capital. Beginning in 1906, the Western Pacific Railroad approached numerous property owners to purchase an 80’-wide right-of-way between 19th and 20th Streets. The citizens of Sacramento voted to approve the railroad’s proposal for a landscaped parkway flanking the tracks, with overhead pedestrian crossings at major intersections;167 neither the landscaped parkway nor the overhead crossings were ever built.

The new rail line’s construction resulted in the demolition or relocation of many stately (and vernacular) residences as the new transcontinental railroad line was constructed in a northsouth route through the city, generally between 19th and 20th Streets, just east of the downtown.168
The Western Pacific passenger depot (extant) was constructed in 1909 between J and K streets, east of 19th Street. Freight service began that year, and passenger service began in 1910. The depot was designed in the Mission Revival style by Willis J. Polk, the San Francisco representative of D.H. Burnham & Co. of Chicago who was becoming a prominent architect in his own right (See Figure 10).

Figure 30. Former Western Pacific passenger depot.

Source: Page & Trumbull.

The Western Pacific Shops (also known as the Jeffery Shops after Edward Turner Jeffery, the company’s president from 1913 to 1917) were constructed on Sutterville Road in the south side of the city. The shops became the railroad’s principal maintenance facilities for its machines and

167 Burg, Sacramento’s K Street, 62-3.
168 The Railroad Stations of Sacramento,” California State Railroad Museum.

ENVIRONMENTAL RESOURCES

GENERAL PLAN TECHNICAL BACKGROUND REPORT 6.3-68 CITY OF SACRAMENTO tools and were a major employer in Sacramento. The shops closed in the 1980s and were later demolished.169
Industry: Refrigeration, Plants, and Canneries
The Sacramento Valley has always been considered an agriculturally wealthy region, with a climate and geography that make farming a lucrative profession. Sacramento was a major nexus for the transportation of both people and goods; a large amount of goods transported were agricultural products.

During the latter half of the nineteenth century, numerous advancements were made in the railroad and agriculture industries. Modern technology in the 1860s introduced the prototypes of refrigerated railroad cars, and the first express train shipment of Sacramento Valley-grown fruit was delivered to the East Coast in 1886.170 Refrigeration on the railways improved such that by the mid-1890s, approximately 75 percent of all fruit that was transported from California to the East Coast originated in the Sacramento Valley.171
The Pacific Fruit Express Company (or PFE) was established in 1906 as a joint venture by the Southern Pacific and Union Pacific railroads to transport perishable goods eastward from California, and later from the Pacific Northwest and the Southwest as well. The PFE initially operated a fleet of 6,600 refrigerated railroad cars known as “reefers,” and this number increased to 40,000 by 1928.172 The Western Pacific had a contract with the PFE from 1923 until 1967 and provided its own refrigerator service.173 The transportation of goods from Sacramento began in nearby Roseville, where the world’s largest ice plant (or icing station) was located. The reefers were “pre-iced” and sent to a loading point—often along Sacramento’s embarcadero—before returning to Roseville to be repacked with ice and shipped out.174 In 1920, Cartensen’s Crystal Ice, Sacramento’s primary ice supplier, constructed a warehouse on the R Street rail corridor at 18th Street.

By the early twentieth century, Sacramento was well-established as a bustling center of business in California, especially on Front Street. According to Sacramento historian William Burg, “[By 1910, a] wall of warehouses and wharves lined the Sacramento River from I Street to R Street. Front Street was a maze of railroad tracks, transferring goods from Sacramento’s granaries, canneries, breweries, lumber mills and other industries to riverboats and barges. The riverfront was Sacramento’s working heart, from the Southern Pacific Shops on the north end of the city to the Friend & Terry lumber mill on Front and V Street.”175

169 Avella, Sacramento: Indomitable City, 147.
170
“Railroads and Agriculture,” California State Railroad Museum, accessed 10 December 2012, http://www.csrmf.org/explore-and-learn/railroad-history/california-calls-you/railroads-and-agriculture. 171 “Timeline,” Sacramento History Online.
172 Richard J. Orsi, Sunset Limited: The Southern Pacific Railroad and the Development of the American West 1850-1930 (Berkeley: University of California Press, 2005). 173 “Western Pacific, The Last Transcontinental Link,” Western Pacific Online, accessed 10 December 2012, http://www.wplives.com.
174 Interstate Commerce Commission, Decisions of the Interstate Commerce Commission of the United States vol. 32 (Washington, D.C.: 1915), 18-9.
175 William Burg, “Sacramento: 1910,” Midtown Monthly, 1 April 2010, accessed 10 December 2012, http://www.midtownmonthly.net/life/sacramento-1910.

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CITY OF SACRAMENTO 6.3-69 GENERAL PLAN TECHNICAL BACKGROUND REPORT

Figure 31. The California Almond Growers Exchange facility, shown here circa 1929, like most of Sacramento’s canneries and packing plants, had excellent rail access.
[Center for Sacramento History, California Almond Growers Exchange Collection, 1981/006/005].

As the agriculture industry continued to thrive during the first decades of the twentieth century, the railroads constructed spur lines to service many of the new canneries, packing plants, and factories that were being constructed in and around Sacramento. In 1912, Libby, McNeill & Libby opened the largest fruit and vegetable cannery on the West Coast at a nine-acre complex located at the intersection of 31st Street (now Alhambra Boulevard,) R Street, and Stockton Boulevard (extant) (see Figure 12).176 The cannery was described as having “excellent rail connections, having two spur tracks connected with the Southern Pacific railroad and the Northern Electric railway. Track No. 1 extends the entire length of the main building, the tracks being at such a level that the car floor is even with the 16-foot concrete platform that extends between the main building and the tracks. Green fruit is received over this track and unloaded directly from cars to the receiving room.”177 The California Almond Grower’s Exchange, first plant, constructed in 1914 at 18th and C Streets, also enjoyed excellent rail access (see Figure 11). California Packing Company (Calpak) Plant No. 11 (extant) was constructed in 1925 at the intersection of 17th and C streets. Of the four canneries that were owned by the California

176 Burg, “The Big Tomato,” Midtown Monthly (11 March 2011), accessed 10 December 2012, http://www.midtownmonthly.net/life/the-big-tomato/.
177 C.W. Geiger, “Libby, McNeill & Libby’s Sacramento Cannery,” Canning Age (January 1921), 12.

ENVIRONMENTAL RESOURCES

GENERAL PLAN TECHNICAL BACKGROUND REPORT 6.3-70 CITY OF SACRAMENTO Packing Company and constructed in Sacramento, all were served by two railroads, and Calpak Plant No. 11 is the sole remaining facility.

Figure 32. This image, circa 1920, shows the Libby, McNeil & Libby cannery, which was located at 31st Street (Alhambra), R Street, and Stockton Boulevard along the R Street rail corridor. [Center for Sacramento History, David L. Joslyn Collection, 1970/001/0075].

The PFE was dissolved in April 1978. The Southern Pacific’s refrigerator car line continued to be known as the PFE, and the Union Pacific adopted the name Union Pacific Fruit Express.178 Electric Interurban Railroads
In chronicling the history of railroads in Sacramento, it is important to differentiate between types of railway transport. As two rail scholars suggest, “the term interurban may be applied to railways that shared most or all of the four following characteristics: electrical power, primary emphasis on passenger service, equipment that was heavier and faster than city streetcars, and operation on streets in cities but at the sides of highways or on private rights-of-way in rural areas.”179 Another scholar made the following observations in 1961 about interurban rail service:

The interurbans seemed to fill a travel void for much of America. Aside from what slow, infrequent, and grimy local passenger service might be available from the steam railroads, rural America was pretty well restricted to whatever lay within horse and buggy range. The interurbans were bright and clean, stopped almost

178 Maury Klein, Union Pacific: The Reconfiguration: America’s Greatest Railroad from 1969 to Present (New York:

Oxford University Press, 2011), 93.
179 George W. Hilton and John F. Due, The Electric Interurban Railways in America (Palo Alto, CA:

Stanford University Press, 1964), 9.

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CITY OF SACRAMENTO 6.3-71 GENERAL PLAN TECHNICAL BACKGROUND REPORT

everywhere, and ran far more frequently than the steam trains, for one car made a train. Once in town the cars usually operated through the streets and went right downtown. They were almost always cheaper than steam trains, too. Smalltowners and farm folk alike swarmed aboard the new electric cars to spend a day in the city, shopping or just seeing the sights. Equally important, the fast package and light freight service opened up new markets for farmers and made big city merchandise quickly available to the local shopkeeper. The commercial traveler, or “drummer,” took the interurbans with enthusiasm for they carried him to the heart of the business district, often right to his hotel door, and the frequent schedules made it possible to cover more cities and towns in a day than he could on the steam trains.180
In the early twentieth century, Sacramento was host to four electric interurban railroads, including the Northern Electric Railway, the Oakland and Antioch Railway, the Central California Traction Company, and the Sacramento Northern Railway.

The Northern Electric Railway
The Northern Electric Railway which connected the state capital to Chico to the north, offered transport beginning in 1907. Passengers arrived in downtown Sacramento at a depot located at 8 th and J streets (demolished); freight trains were routed around the downtown area. The Northern Electric Railway also operated a streetcar service within the city and to neighboring suburbs. A bridge for Northern Electric’s Woodland Branch electric trains spanning the Sacramento River at M Street (now Capitol Mall) was constructed in 1911 in anticipation of the completion of a line to the Bay Area, but the line was never completed.181 In 1920, the company was restructured and renamed the Sacramento Northern Railroad (often abbreviated as SNRR).

The Oakland and Antioch Railway
The Oakland and Antioch Railway (often abbreviated as O&A and later renamed the Oakland, Antioch, and Eastern Railway or OA&E) leased the M Street Bridge from the Northern Electric Railway (the two companies shared the bridge) and brought its passengers from Oakland to a depot located at 2nd and I streets (demolished). In 1920, the OA&E was renamed the San Francisco-Sacramento Railroad (often abbreviated as SF-S).

The Central California Traction Company
The Central California Traction Company (often abbreviated as CCT), was established in 1910 as an electric railroad providing freight and interurban passenger service along a 48-mile line stretching from Stockton to Sacramento. One author states that the company “opened up a vast region to agriculture and contributed to the development of south Sacramento County. The freight service carried merchandise, livestock and produce, primarily grapes and strawberries.” In Sacramento, the downtown depot (demolished) was located less than one block from the Northern Electric Railway depot.182 The Central California Traction Company ended its passenger service in 1933.183

180 William D. Middleton, The Interurban Era (Milwaukee, WI: Kalmbach Publishing, 1961), accessed 10 December 2012, http://libsysdigi.library.illinois.edu/oca/Books2009- 06/interurbanera00midd/interurbanera00midd_djvu.txt, 12. 181 William Burg, Sacramento’s K Street, 60.
182 William Burg, Sacramento’s K Street, 60,-1, 145.
183 “The Railroad Stations of Sacramento,” California State Railroad Museum.

ENVIRONMENTAL RESOURCES

GENERAL PLAN TECHNICAL BACKGROUND REPORT 6.3-72 CITY OF SACRAMENTO In 1925, the three competing local interurban railway companies joined forces to construct a new passenger station at 11th and I streets called Union Station (demolished). The building was featured in Electric Railway Journal with the following description, “Architecturally the station is a departure from established precedent in California. It is an adaptation of the Corinthian style, with the front divided into five sections by full length columns…Materials used are brick and cast stone, finished with colored cement. The foundations are of concrete. The primary supporting frame members are of steel, while the joists and studding are of Oregon pine.” The station served 7,000 people per day.184
The Sacramento Northern Railway
The Sacramento Northern Railroad and the San Francisco-Sacramento Railroad were merged to become a subsidiary company to the Western Pacific around 1929, and was thereafter known as the Sacramento Northern Railway (often abbreviated as SN). Between December 1933 and December 1935, the Sacramento Northern Railway, in conjunction with the State of California and Sacramento and Yolo Counties, designed and constructed Tower Bridge, which replaced the old M Street Bridge (see Figure 8). Tower Bridge (extant) was California’s first vertical lift bridge and could accommodate increased traffic across the river for pedestrians, automobiles, and trains in the case of an evacuation. At the dedication ceremony, Governor Frank Merriam described the Streamline Moderne-style bridge as being, “unexcelled in its architectural and engineering beauty and constituting an impressive western gateway to the Capitol City.”185

184 “Union Station Built in Sacramento,” Electric Railways Journal 67 no. 23 (5 June 1926), 969. 185 “Tower Bridge, 99 W Sacramento,” Waymarking,
http://www.waymarking.com/waymarks/WM3MP6_Tower_Bridge_99_W_Sacramento_California.; “Tower Bridge,” National Register of Historic Places Nomination Form (1982), accessed 1 April 2014, http://pdfhost.focus.nps.gov/docs/NRHP/Text/82004845.pdf.

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Figure 33. This map show street car lines, steam and electric rail roads, state highways, street car lines and state highways combined, and the Lincoln Highway, schools, and depots/public buildings. schools are represented by black circles and depot buildings in black. Street car lines are represented by heavy dashed lines; steam and electric rail lines are represented by a thin solid line. A higher resolution map can be viewed online at the following address:
http://sacramentohistory.org/admin/photo/778_1563.pdf.

Map of the City of Sacramento, C.G. Brown, 1923. [Center for Sacramento History, City of Sacramento Collection, 1979/X05/005].

ENVIRONMENTAL RESOURCES

GENERAL PLAN TECHNICAL BACKGROUND REPORT 6.3-74 CITY OF SACRAMENTO Figure 34. Tower Bridge (extant) with a Sacramento Northern Railway interurban electric passenger train, ca. 1935-1940.

Source: Images of Rail: Sacramento Southern Railroad, 39 (courtesy of the BAERA Archives Collection/Western Railway Museum).

The Sacramento Northern Railway ceased interurban passenger service to Sacramento in 1940, though freight service continued until 1962.186 The Tower Bridge stopped carrying trains in 1962. The Sacramento Northern Railway’s freight service operated elsewhere until 1982, when its parent, Western Pacific, was incorporated by the Union Pacific. Union Station served various commercial functions, including housing a grocery store called the “Food Depot,” in the early 1950s. The building was demolished in 1972.187 Tower Bridge remains in use by automobiles, pedestrians, and, now, bicyclists. The remaining railroad tracks on the bridge were initially covered over, but were eventually removed in approximately 2005.

Decline of the Railroad Era
In the first decades of the twentieth century, Americans increasingly relied on a new form of transportation—the automobile. By 1929, one-third of Sacramentans owned a car. After WWI many people relocated from Sacramento’s downtown to residential suburbs, several of which were located along street car lines, most operated by Pacific Gas & Electric, including portions of Oak Park, East Sacramento, Curtis Park and Land Park. As suburban conveniences such as local shopping centers and drive-in movie theaters were introduced, development focused on the ease and independence of the automobile—rather than trains or streetcars —to get from place to place. Nationally, the railroads recorded an 84% drop in non-commuter ridership between 1945 and 1964.188 With the expansion of regional highways came the rising population of automobiles. Similarly, railroads were no longer the only or most efficient way to ship goods.

Truck shipments via the new highways became more convenient and expeditious.

186 Kevin W. Hecteman, Images of Rail: Sacramento Southern Railroad (San Francisco: Arcadia Publishing, 2009), 39.
187 Garth G. Groff, “Sacramento’s Union Traction Depot,” Sacramento Northern On-Line, 13 August 2011, accessed 18 December 2012, http://www.wplives.org/sn/union.html. 188 Center for Sacramento History, Images of America: Old Sacramento and Downtown (San Francisco:

Arcadia Publishing, 2006).

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CITY OF SACRAMENTO 6.3-75 GENERAL PLAN TECHNICAL BACKGROUND REPORT

As passenger trains across the country were discontinued, including the Western Pacific Railroad’s “California Zephyr” line (which ran through Sacramento) in 1970, the federal government was pressured to develop a policy to save America’s railroads. On May 1, 1971, the majority of remaining rail passenger service in the United States was transferred to Amtrak—a federally subsidized carrier—including the Union Pacific Railroad’s passenger rail service.189 The Union Pacific acquired the Western Pacific Railroad and all of its subsidiaries in 1982 as well as the Southern Pacific Railroad in 1996. It continues to host Amtrak train service on many of its branch lines, including Amtrak interstate trains serving Sacramento on its main lines, the California Zephyr and Coast Starlight, and the regional San Joaquin. Union Pacific lines also host the AmTrak/Caltrans’ “Capitol Corridor” service connecting San Jose and Auburn via Sacramento.190
The Sacramento Regional Transit District opened its light rail service in 1987, connecting the eastern parts of the city to the downtown, with extensions in the 1990s and 2000s. Today portions of the light rail system operate along the historic railroad corridors, including segments of R Street and down Quill Alley between Q and R streets; one line terminates at the Sacramento Valley Station, the former Southern Pacific Railroad Sacramento Depot.

Historic Themes and Associated Property Types
The primary historic themes and events which characterize the history of railroads in Sacramento include:
 Growth spurred by competing railroad companies
 Development of industrial areas within the city as a result of railroad construction  Expansion of railroad service to agricultural and industrial facilities  Electrification of the railways, for both freight and passenger/commuter services  Reuse of former railroad corridors
Identification
For the purposes of determining eligibility for historic designation, three categories of resource types have been developed based on the previous discussion of property types. Each category includes certain specific types of resources as listed below:

1. Stations: This category includes depot buildings and associated passenger amenities. The few extant examples of station properties are associated with the Southern Pacific and Western Pacific Railroads.

2. Industrial Buildings: This category includes all buildings and structures associated with manufacturing and maintenance of the railroads in Sacramento. Potentially the most significant are those constructed for the Central/Southern Pacific Railroads, which appear to be the only extant heavy rail examples.

3. Rights-of-Way: This category includes railroad and streetcar corridors and bridges and other associated features, including levees, catenary and telegraph poles/lines/streetlights, and signal towers.

189 Union Pacific, “Passenger Service Transfers to Amtrak,” Union Pacific 150 Timeline, accessed 1 April 2014, http://up150.com/timeline/amtrak.
190 Union Pacific, “Chronological History,” accessed 10 December 2012, http://www.up.com/aboutup/history/chronology/index.htm.

ENVIRONMENTAL RESOURCES

GENERAL PLAN TECHNICAL BACKGROUND REPORT 6.3-76 CITY OF SACRAMENTO Property Types
Stations
Railroad stations are stopping places that facilitate the transfer of passengers and/or freight.

Typical features of stations are a platform, a railroad track, and a depot building. Some stations provided additional services for passengers, such as a post office, and these may have been located in separate buildings.

Depot Buildings
For many travelers to Sacramento, the train depot was the portal through which the city was accessed. As the first building one would experience upon arrival, passenger depots were typically designed to be architecturally striking and to convey a message of permanence, elegance, and civic pride. A number of passenger depots belonging to the various railroad companies survive in Sacramento. The only building that remains part of a functioning railroad station is the Sacramento Valley Station, also known as the Amtrak depot (originally Southern Pacific) located at 401 I Street (completed in 1926). The former Western Pacific passenger depot located at 1910 J Street (built in 1909) has served as an Old Spaghetti Factory restaurant for more than 40 years. Buildings that represent the oldest passenger and freight depots belonging to the Central Pacific are located on Front Street in the Old Sacramento Historic District, though these are reconstructions built in 1976. The depots for the electric interurban trains have been demolished.

Passenger Amenities
Because of the high volume of traffic passing through the train stations, the areas around depot buildings offered various services available to passengers. For example, the American Railway Express Building at 431 I Street—which also housed the railway terminal post office—was constructed as an annex to the former Southern Pacific depot.

Significance
Stations may be found eligible under National Register Criteria A and C, California Register Criteria 1 and 3, and Sacramento Register Criteria i and ii. As major stopping points for trains in the State Capital and the first building one would experience upon arrival, passenger depots were typically designed to be architecturally striking and to convey a message of permanence, elegance, and civic pride. Properties eligible for listing in the National Register under Criterion A or the California Register under Criterion 1 (event) should be at least 50 years of age and will have a close association with a particular railroad company or be associated with an important historical event or pattern relating to the history of the railroads in Sacramento, California, or the nation.

For properties to be listed under National Register Criterion C, California Register Criterion 3, or Sacramento Register Criterion iii (Design/Construction), station properties should be at least 50 years of age, and should “represent the work of a master or possess high artistic values” and may also demonstrate distinctive characteristics of a “type, period, region, or method of construction.”
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CITY OF SACRAMENTO 6.3-77 GENERAL PLAN TECHNICAL BACKGROUND REPORT

Integrity
Of the National Register’s seven aspects of integrity listed above, stations should retain (in order of importance): integrity of design, materials, workmanship, feeling, association, location, and setting; please note for local evaluations, the Sacramento Register does not address integrity of “feeling.” Stations represent the interests and identities of multiple users, including the railroad company, the architect and builder, travelers, residents, and civic powers.

Therefore, it is important that the building retain the ability to convey its building technology, craft, and the artistic inclinations of architects and clients. The aspects of association are also important aspects of integrity, conveying the building’s origins and associations with the people who used it. Location and setting are also important aspects, providing the physical and functional contexts for the resource.

Industrial Buildings
Early in its history, Sacramento became a major hub for transportation in California and the entire West Coast. The city was home to the primary maintenance facilities for two transcontinental railroad companies, the Central Pacific-Southern Pacific and the Western Pacific. These companies owned and operated sprawling industrial compounds that were two of the largest employers in Sacramento County. Many locomotives, rail cars, and other equipment for a company’s entire rail network were assembled, repaired, and maintained at these complexes, which housed tools, supplies, and heavy machinery.

Railyards, Carbarns and Shops:

The former Central Pacific-Southern Pacific railyard and shop buildings had a continuous history of construction and operation beginning in 1867. Operations ceased in 1999. Although many of the buildings and structures that comprised the vast complex have been demolished, several of the largest and oldest of the core structures in the complex are extant. Other than the former PG&E streetcar barn/shops on “N” Street, between 28th and 29th Streets, now used by Regional Transit, these appear to be the only surviving railroad company industrial buildings in Sacramento.

Significance
Industrial buildings may be found eligible under National Register Criteria A and C, California Register Criteria 1 and 3, and Sacramento Register Criteria i and iii. The history of Sacramento is closely tied to the presence of competing railroad companies. The early railroad’s rights-ofway circumvented the city center, and the railroads’ shop complexes were constructed in proximity to these peripheral railroad corridors. Properties eligible for listing in the National Register under Criterion A, the California Register under Criterion 1, or the Sacramento Register under Criterion i (Event) should and will have a close association with the railroad industry or be associated with an important historical event or pattern relating to the history of the railroads in Sacramento, California, or the nation.

For properties to be listed under National Register Criterion C, California Register Criterion 3, or Sacramento Register Criterion iii (Design/Construction), industrial properties should and demonstrate distinctive characteristics of a “type, period, region, or method of construction.” Integrity
In regard to industrial properties, the seven aspects of integrity in order of importance should be:

ENVIRONMENTAL RESOURCES

GENERAL PLAN TECHNICAL BACKGROUND REPORT 6.3-78 CITY OF SACRAMENTO design, association, feeling, location, setting, materials and workmanship; please note for local evaluations, the Sacramento Register does not address integrity of “feeling.” Because the historic character of an industrial building or complex depends more on how it conveys the organization of work that occurs within, it is important that enough of the original design, including massing, structural systems, and spatial organization, remain intact in order to convey how the property was used. Integrity of association and feeling are ranked next in importance because the building or complex must retain enough overall integrity to express the significance of the industry. Location and setting are important because they illustrate how the industry was sited in regard to transportation and roads, adjoining properties, and similar industries. Materials and workmanship are less important because industrial buildings are typically utilitarian structures that gain their significance more from function than from appearance. Furthermore, alterations to an industrial plant occur quite frequently, especially if the business expands or incorporates newer technology. Alterations to an industrial plant (rather than demolishing it) attest to the flexibility of the original design.

Rights-of-Way
Rights-of-way are the most widespread of all railroad-related property types in Sacramento.

They consist primarily of the linear tracks, often on raised levees, that make up a railroad’s network, without which the railroad could not function. The early railroads circumvented Sacramento’s downtown- and central city, and contributed to the creation of, then, peripheral industrial areas, and the later electric interurban railroads brought traffic through the city center.

Several historic rights-of-way continue to function as railroad properties, whereas others retain their tracks but no longer serve the railroad. Still other rights-of-way have been adapted to new uses, including pedestrian bridges, and are the few remnants of the electric interurban railroads.

Tracks/Railroad Corridors
Numerous businesses positioned themselves along a railroad track to take advantage of the convenient shipping line. For this reason, industries were concentrated in proximity to the early railroad rights-of-way, and several principal railroad corridors were established in Sacramento.

Examples include the tracks along R Street, east from Front Street (historically hosted the Sacramento Valley Railroad and the Central Pacific-Southern Pacific); along the alley (historically named Whitney Avenue, now named Quill Alley) between Q and R Streets, from 8th to 19th Streets (historically hosted the Western Pacific); along Front Street (historically hosted the Sacramento Valley Railroad and the Central Pacific-Southern Pacific); between 19th and 20th streets (historically hosted the Western Pacific); within the N. 16th Street industrial area (historically hosted the Southern Pacific), and along B Street (historically hosted by the Southern Pacific). Of these, the Front Street, B Street, and 19th/20th Streets corridors continue to be used for train traffic. The California State Railroad Museum operates a heritage train, the Sacramento Southern Railroad (historically a branch line of the Southern Pacific), along Front Street. Union Pacific and Amtrak services run along B Street and the 19th/20th streets corridor.

Sacramento’s light rail runs on segments of R Street and the alley between Q and R streets.

Sacramento’s electric interurban lines had their own freight corridors. Sacramento Northern operated a belt line that entered Sacramento between 18th & 19th Streets, east on C Street, south on Alhambra, west on X Street, and north on Front Street. The same company also operated a streetcar and industrial branch line on Bassetlaw Avenue in north Sacramento, now Arden Way, to the Swanston meatpacking plant in the vicinity of the current Swanston light rail station. Central California Traction entered Sacramento via 21st Avenue, Stockton Boulevard, CULTURAL RESOURCES: APPENDIX

CITY OF SACRAMENTO 6.3-79 GENERAL PLAN TECHNICAL BACKGROUND REPORT

2 nd Avenue, Broadway, and joined Sacramento Northern’s belt line at Alhambra and X, Streets with car facilities at Alhambra and X Street.191

Subcontexts/Themes not Included in This Evaluation
 Reuse of former railroad corridors
The reuse of former railroad corridors in Sacramento is not thoroughly evaluated in this context.

The history of their reuse, especially for modern mass transit projects like the Sacramento Regional Transit Light Rail system, requires further research, evaluation, and documentation.

Bridges
A number of bridges span the Sacramento and American rivers, several of which were originally constructed to carry railroad traffic. Today, three of these bridges continue to be used by the railroad. These are the I Street Bridge over the Sacramento River (built in 1911) and two Warren through-truss bridges over the American River (one formerly belonging to Southern Pacific, built in 1910 and one formerly belonging to the Western Pacific, date unknown).192 The Sacramento Northern Railroad constructed two railroad bridges from which the tracks have been removed. The Tower Bridge over the Sacramento River was built in 1935. During the 1960s, the Sacramento Northern was de-electrified. In 1963, the railroad tracks, median, and railroad switching and locking mechanisms were removed. This was possible because Sacramento Northern obtained trackage rights to use the Southern Pacific Railroad’s tracks over the I Street Bridge.193 The second Sacramento Northern bridge with its tracks removed is the Pratt through-truss bridge that crosses the American River at approximately 7th Street (date unknown). This bridge was converted to a pedestrian and bicycle bridge as part of the Sacramento Northern Bike Trail.194 Sacramento Northern’s service to Sacramento ended in 1982.

The curbed highway bridge at R Street was constructed for Southern Pacific Railroad in 1970.

Although it has not yet reached the 50-year threshold for historical significance, it should be regarded as a potential historic resource for the purposes of future evaluation.

Other Associated Features
Additional associated features may include railroad spur lines, which led from central tracks directly to businesses located along the lines; signaling devices, particularly where railroads crossed streets in urban areas; catenary poles, often with light fixtures, noting in particular the extant poles and lights along Alhambra Boulevard; telegraph poles, which were typically constructed along railroad right-of-ways; and cobblestones, siding fragments, or other materials which reflect the original composition of the rail and street infrastructure. These features should be identified through survey.

191 William Burg, Images of Rail: Sacramento’s Streetcars (Charleston, SC: Arcadia, 2006), 75-98. 192 “American River Union Pacific RR East,” Historic Bridges of the United States, accessed 4 January 2013, http://bridgehunter.com/ca/sacramento/bh46034/; “American River Union Pacific RR West,” Historic Bridges of the United States, accessed 4 January 2013,
http://bridgehunter.com/ca/sacramento/bh46033/.
193 “Tower Bridge,” National Register of Historic Places Nomination Form. 194 “Sacramento Northern Bike Trail,” Historic Bridges of the United States, accessed 4 January 2013, http://bridgehunter.com/ca/sacramento/bh45387/.

ENVIRONMENTAL RESOURCES

GENERAL PLAN TECHNICAL BACKGROUND REPORT 6.3-80 CITY OF SACRAMENTO Figure 35. Railroad spurs located north of the former Crystal Ice Plant on R Street.

Source: Page & Trumbull, 2013.

Subcontexts/Themes Not Included in This Evaluation
 Related Streetcar Residential Subdivisions and Parks
Sacramento’s streetcar suburbs are not thoroughly evaluated in this context. The history of Sacramento’s suburban growth being spurred by the establishment of streetcar lines requires further research, evaluation, and documentation.

In the late 19th century and early in the 20th century, Sacramento began filling out the central city grid with the Boulevard Park subdivision, and expanding beyond the original grid into several “streetcar suburbs,” including areas of the McKinley Park and East Sacramento, Oak Park, Curtis Park and Land Park neighborhoods which were developed largely in response to the street car lines’ installation, which began at the end of the 19th and into the early part of the 20th centuries, with Pacific Gas & Electric (PG&E) the major installer. The electrified streetcar system’s installation of these new lines also included the installation of a new feature for residential areas, what were often referred to, in the brochures selling lots in the subdivisions, as “electroliers” or street lights with underground electric wiring. Similarly, these streetcar lines often led to parks with recreation opportunities outside the work-a-day city environment, including lines to East Park/McKinley Park and Oak Park/Joyland. The streetcar suburbs were annexed into the city beginning in 1911 and the streetcars were gone in Sacramento by the late 1940s.

Significance
Rights-of-way may be found eligible under National Register Criteria A and C, California Register Criteria 1 and 3, and Sacramento Register Criteria i and iii. People and goods were channeled in the Capital City via railroad rights-of-way, many on levees defined neighborhood boundaries, and it was along these routes that industries and businesses typically developed.

Properties eligible for listing in the National Register under Criterion A or California Register Criterion 1 (Event) should be 50 years or older and will have a close association with the CULTURAL RESOURCES: APPENDIX

CITY OF SACRAMENTO 6.3-81 GENERAL PLAN TECHNICAL BACKGROUND REPORT

railroad industry or be associated with an important historical event or pattern relating to the history of the railroads in Sacramento, California, or the nation.

For properties to be listed under National Register Criterion C, California Register Criterion 3, or Sacramento Register Criterion iii (Design/Construction), rights-of-way should demonstrate distinctive characteristics of a “type, period, region, or method of construction” and may “represent the work of a master or possess high artistic values.” These are likely limited to the railroad bridges, several of which involve significant engineering elements or were designed to accommodate a particular set of conditions in their specific locations, and which were designed with aesthetic considerations.

Integrity
In regard to rights-of-way, the seven aspects of integrity in order of importance should be:
location, setting, association, workmanship, design, materials, and feeling; please note for local evaluations, the Sacramento Register does not address integrity of “feeling.” While the physical properties of rights-of-way may be wide-ranging, they are best identified by a sense of place as well as a type or era of construction. Railroad rights-of-way were critical elements in establishing industrial and commercial areas, so integrity of association and setting should be retained. The rights-of-way were expertly engineered, and often embody unique examples of workmanship, design, and materials. Association with the property’s original builder/owner and function are also important, as is the aspect of location, which provides the physical and functional contexts for the resource. Landforms for rights of way should also be considered; in some areas the levees used for railroad right of way are still extant, such as on R Street west of 6th.  WORLD WAR II, TRANSPORTATION, AND REDEVELOPMENT CONTEXT STATEMENT “If you look at the history of Sacramento you can really look at two key periods of history that actually created the city and actually boosted its population. The first being the gold rush, when gold was discovered in 1848. The City literally burst on the scene overnight. And the second time was World War II.” –Marcia Eymann, Center for Sacramento History195 The advent of World War II was pivotal in Sacramento’s development from a small city with an economy primarily founded on agricultural and railroad industries to one comprised of state and federal government offices, military bases, and transportation. The Great Depression hit the City and County of Sacramento hard, and although federal support through Public Works Administration programs in the 1930s helped the region, federal funding was not enough for the city to regain the stability it experienced during its earlier agricultural and railroad heyday.

The bombing of Pearl Harbor on December 7, 1941, prompted an immediate response in the Sacramento region: Mather Field, a dormant World War I-era pilot training base, was reactivated and the McClellan Supply Depot, which was funded by federal monies and opened in the mid-1930s, expanded to support the war effort. Additionally, the Sacramento Signal Depot (later known as the Sacramento Army Depot) began operations in January 1942. The Sacramento Signal Depot ), was located at the Bercut-Richards facility at 7th and B Streets during World War II before a permanent facility was constructed at 8350 Fruitridge Road in

195 Quoted in James Morrison, “How World War II Changed the Face of Sacramento,” Capital Public Radio (27 May 2011), accessed 1 April 2014, http://archive2.capradio.org/articles/2011/05/27/how-world-war-ii-changed-the-face-ofsacramento.

ENVIRONMENTAL RESOURCES

GENERAL PLAN TECHNICAL BACKGROUND REPORT 6.3-82 CITY OF SACRAMENTO 1945.196 The military build-up prompted new development patterns in the region, as residential suburbs with shopping centers and schools were created in the vicinity of the air force bases east of the city. New temporary residents began to settle in Sacramento, hailing from Oklahoma and other states afflicted by the Dust Bowl in the 1930s and guest laborers brought from Mexico to the region under the Bracero Act. There was also a migration of African American workers, primarily from the South, moving into areas previously occupied by Japanese Americans relocated to internment camps. Many of the people drawn to Sacramento by new jobs would remain, further diversifying the city with their cultures and customs.

Sacramento’s population boom may have withstood many of the economic problems that had plagued the city during the Great Depression; however, it stressed the infrastructure of the expanding region. This tension manifested itself as traffic congestion as state workers drove from the suburbs to their offices downtown, prompting the city to evaluate regional circulation patterns and join the national interest in building freeways and interstate highways that would connect Sacramento to the State and the nation and improve transportation of goods and services. The economic shift from the industries of agriculture and railroads to state government and freeways also led the city to obtain federal redevelopment money to address “slum” neighborhoods that bordered the Sacramento River in the city’s West End. The West End was home to a low-income population of primarily male laborers who sought seasonal agricultural, factory, and railroad jobs as well as minority families who were restricted by housing covenants from residing elsewhere in the city. With federal redevelopment money, Sacramento began to reshape the entrance to the city from Tower Bridge to the Capitol and to encourage the development of a new downtown to support the expanding state government. New freeways were designed in the 1960s and 1970s to alleviate the congestion that began to deter suburban residents from venturing downtown. The Capitol Area Development Authority (discussed more thoroughly in the State Government context) was founded to encourage the preservation and development of mixed-use and residential projects around the Capitol. Together, the implementation of these plans altered the physical form of Sacramento.

Themes associated with the history of World War II, redevelopment, and transportation in Sacramento include the shift from an economy focused on agriculture and rail-related industry to one founded on government, military bases and related industries, and automobile- and truck-oriented residential developments and transportation modes; the influx of people from outside California who were drawn to Sacramento by available jobs; the exodus of people and businesses, both voluntary and involuntary in the case of West End residents and businesses, from the city center to newly developed suburban communities and annexed districts; the numerous new construction projects funded by federal monies and federal redevelopment, including many which demolished many blocks of the then-existing parts of the city; and the construction of major freeway systems, which also demolished many blocks of then-existing parts of the city, along with the increasing popularity and availability of automobiles and the efficiencies of shipping via trucks influenced how and where people lived, worked, traveled, and shopped.

The terms “redevelopment” and “urban renewal” are often used interchangeably. In this context statement, the term “redevelopment” refers to the revision of replacement of an existing land use and population distribution pattern through the publicly-funded acquisition of a predominantly built-up area-often through government use of eminent domain—and the clearance and rebuilding of this area according to a publicly-approved comprehensive plan.

196 Ron Starbuck, “Sacramento Army Depot History,” California State Military Museum, accessed 2014, http://www.militarymuseum.org/SacramentoArmyDepot.html.

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CITY OF SACRAMENTO 6.3-83 GENERAL PLAN TECHNICAL BACKGROUND REPORT

Impacts of the Great Depression
In the 1930s, Sacramento was a diverse, but relatively small city with a population of 106,000 people, which included people of Chinese, Japanese, African-American, Italian, Filipino, Portuguese, and Mexican descent. The city’s biggest employers were the local canneries, and two transcontinental railroad companies, the Southern Pacific and the Western Pacific.197 Sacramento’s resources became strained during the Great Depression, as the city and county struggled to provide services for residents impacted by the nationwide economic downturn. The problem was exacerbated by the migration of people from Oklahoma and other Midwestern and Southwestern states who arrived in Sacramento via automobile or by “riding the rails” in search of employment and economic relief. California’s reputation for its rich agricultural industry and the possibility of employment at Mather Field and the new McClellan Air Force Base established in 1936 attracted many of those who came to the Sacramento Valley region. The city’s Recreation Department in cooperation with the Salvation Army administered food and drink at a shelter located at I and Front streets; however, when funds from the City Community Chest ran out, Sacramentans were forced to apply for aid at the county office.198 Hoovervilles, tent or shanty communities of poverty-stricken residents and transients, developed along the Sacramento River, particularly in the River District region of the city (see Figure 1).199 The severe economic conditions of the Great Depression also heightened tensions among cultural groups. Many Mexicans were loaded onto railroad cars and deported to Mexico to decrease the welfare rolls.200

Figure 36. A Hooverville in Sacramento, circa 1940.

197 The War: Sacramento, California, PBS, WETA (September 2007) accessed 4 December 2012, http://www.pbs.org/thewar/the_witnesses_towns_sacramento.htm. 198 Steven M. Avella, Sacramento: Indomitable City (San Francisco: Arcadia Publishing, 2003), 11. 199 City of Sacramento, River District Architectural and Historical Property Survey Update, Prepared by Historic Environment Consultants (July 2009), 5.
200 William Burg, Sacramento’s K Street (Charleston, SC: History Press, 2012.

ENVIRONMENTAL RESOURCES

GENERAL PLAN TECHNICAL BACKGROUND REPORT 6.3-84 CITY OF SACRAMENTO [Center for Sacramento History, Eugene Hepting Collection, 1985/024/0422].

In 1933, the City of Sacramento requested federal aid to respond to the great demand for services in the area. In response, Sacramento was awarded Reconstruction Finance Corporation monies to revitalize businesses, and federal money allocated to state agencies through the State Employment Relief Administration (SERA) was used to help clothe and feed transients living in Sacramento. In 1934, Arthur S. Dudley, the head of the Sacramento Chamber of Commerce from 1920 until 1950, created the National Air Defense Frontier Association to lobby chambers of commerce throughout the nation to create new Air Corps supply and logistical centers.201 On September 8, 1936, Dudley succeeded in opening the Sacramento Air Depot, later known as the McClellan Air Force Base, northeast of the city on Watt Avenue, north of the present-day Interstate 80. The military installations built during this period helped establish California as the number one recipient of Department of Defense dollars on the state level.

Federal money was also channeled into the city through Civil Works Administration and Public Works Administration infrastructure and building projects, including construction of Tower Bridge (1935), the C.K. McClatchy High School on Freeport Boulevard (1937), and the Auditorium at City College (1937), which contains a Ralph Stackpole mural, and which saw a modernization project completed in 2012.202 Social worker Harry Hopkins oversaw Works Progress Administration (WPA) projects that brought $4 million into Sacramento County, such as several landscape features at William Land Park.203
On the eve of World War II, hundreds of refugees
from the Dust Bowl were still camped on the edge of town and worked the hop fields, orchards, and vineyards in the surrounding Sacramento Valley. Many in the city were dependent on charity, relief efforts, and federal work programs.204

Sacramento’s West End
The West End also served as the point of entry for immigrants to the Sacramento area. The residents of Sacramento’s West End included seasonal laborers, working class families, and minority families who were often restricted from residing in other neighborhoods. A portion of this area includes the Sacramento Labor Market, referred to this way because the neighborhood was home to a large number of agricultural, factory and railyard workers. The Labor Market, a subset of the West End, was roughly bounded by Front Street and 6th Streets and between I Street and the M/N Alley.205 The area was known for its boarding houses, single-occupancy residential hotels, cheap restaurants, and employment offices. The nature of the neighborhood became even less desirable with the onset of the Great Depression in 1929 as the number of transients increased. About 5,000 migrant workers lived within the 24-block West End area, lodging near the employment agencies that connected workers with farmers throughout the Sacramento and San Joaquin valleys. Studies prepared in the 1940s found that fifteen percent of all of California’s agricultural hiring was conducted in the Labor Market.206

201 “NAMA Selects Western Rep in Expansion.” The Billboard (1 April 1950). 202 “Out with the Old, In with the New: City College Prepares to Open renovated Auditorium by Year’s End,” Sac City Express (29 September 2011), accessed 1 April 2014,
http://www.scc.losrios.edu/Campus_News/Modernization_of_the_Auditorium.htm. 203 Avella, Sacramento: Indomitable City, 11.
204 The War: Sacramento, California,, PBS
205 Ken Lastufka, “Redevelopment of Sacramento’s west End, 1950-1970: A Historical Overview with an Analysis of the Impact of Relocation,” Thesis submitted in partial satisfaction of the requirements for the degree of Master of Arts in Special Major (Urban Studies) at California State University, Sacramento (1985).
206 Burg, Sacramento’s K Street, 126.

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CITY OF SACRAMENTO 6.3-85 GENERAL PLAN TECHNICAL BACKGROUND REPORT

Figure 37. Sacramento West End and Old Sacramento – looking east down M Street (Capitol Avenue) toward the State Capitol.

Sacramento’s West End is visible in the foreground.
[Center for Sacramento History, Frank Christy Collection, 1998/72/1421].

Pre-War Transportation
Railroads have been integral to Sacramento’s development almost since the city was founded.

The rail corridors—which include the tracks, right of way, and land on either side—were significant contributors to the city’s growth not only because they provided transportation, but also because they contributed to the Sacramento’s commercial makeup. The city’s primary rail corridors ran along A Street and R Street (see Railroad Context).

The first residential subdivisions in Sacramento—in Boulevard Park, Oak Park, East Sacramento, Curtis Park, and Land Park—were located along street car lines. The City Street Railway, Sacramento’s first streetcar line, ran from the Central Pacific depot on Front Street to the California State Fairgrounds, initially located at H and 20th Streets. After the fairgrounds were relocated to Broadway and Stockton Boulevard, the line was extended to East Park in 1871, (later named McKinley Park) where gardens, a small zoo, and bandstand with dance area were located. This line primarily served middle class residents living in the Alkali Flat, Mansion Flat, New Era Park, and—after relocation of the fairgrounds, Boulevard Park—neighborhoods.

Subsequent streetcar lines were similarly developed to provide transportation to incomeproducing destinations. Edwin Alsip and Leonidas Lee Lewis founded the Central Street Railway, which ran from Second and H Street to Thirty-fifth Street and Fifth Avenue in Oak

ENVIRONMENTAL RESOURCES

GENERAL PLAN TECHNICAL BACKGROUND REPORT 6.3-86 CITY OF SACRAMENTO Park.207 Located at the end of the streetcar line was Oak Park which originally opened in 1889.

When Sacramento Electric Gas & Railway purchased and consolidated the streetcar system, the park was reopened as Joyland. The park would eventually contain a roller coaster, skating rink, pool, zoo and multiple concession stands.208 Today, this site is known as McClatchy Park.

The original Oak Park terminus was a park called Oak Park. Joyland was built later, after Sacramento Electric, Gas & Railway purchased and consolidated the streetcar system.

Figure 38. Sacramento Streetcar System Plan (1925) in “Sacramento Streetcar System Plan,” City of Sacramento (2012), 32.

By the 1930s, however, Sacramento had experienced a shift from public transportation to private automobiles. The first automobile and bicycle shop in Sacramento was owned by Joseph Schnerr at 10th and J Streets in 1903, and by 1929 one-third of Sacramentans owned a car. This shift in transportation patterns and methods also reflected a new attitude about the Sacramento River, which before the advent of the railroad, and then before the increasingly affordable automobile, was the most important transportation corridor in the state.209 The onset of World War II would further encourage the use of automobiles over public transportation, and trucking over river and rail shipping, as highways developed and businesses, no longer dependent on railroads, and residents, no longer dependent on streetcars, began to relocate to less expensive areas outside of downtown.

World War II as Catalyst

207 William Burg, “Sacramento’s Streetcar Suburbs,” Old City Guardian (22 August 2007), http://sacramentohistory.blogspot.com/2007/08/sacramentos-streetcar-suburbs. 208 Lee Simpson, Sacramento’s Oak Park (San Francisco: Arcadia Publishing, 2004), 67. 209 Center for Sacramento History, Images of America: Old Sacramento and Downtown (San Francisco:

Arcadia, 2006).

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In the late 1930s, federal money began flowing into Sacramento as The United States’ entry into World War II seemed unavoidable.210 With the Japanese bombing of Pearl Harbor on December 7, 1941, the United States entered the war. The City of Sacramento immediately improved the security of its public buildings and began to diligently watch the delta levees for signs of sabotage. Mayor Thomas Monk organized civil defense procedures and implemented the city’s first blackout on December 8 at 7:23 in the evening.211

From California Department of Transportation Post-War Tract Housing Context:

The nation’s entry into the war in 1941 in both the Asian and European theaters required a tremendous number of ships, planes, tanks, and other weapons as well as ammunition and a wide variety of other equipment. War production served as an engine of industrial growth across the country, but even more dramatically in California than elsewhere.

Prior to World War II, the Western United States accounted for less than ten percent of the nation’s manufacturing.5 Although California was the largest manufacturing state in the West, its main products were agricultural. Government spending on military equipment, base construction and other infrastructure, totaling $35 billion from 1941 through 1945, transformed California into an industrial power...

The rapid growth of industrial output and employment opportunities during World War II led to an internal migration of eight to ten million workers nationwide, as residents of small towns and rural areas moved to urban centers (27)… The wartime military buildup changed California in dramatic and lasting ways. While any of the state’s military facilities were decommissioned after the war and have since disappeared, others have remained through the Cold War years to the present…While the presence of the U.S. military has remained an important part of California’s political culture and economy, even more important was the industrialization spurred by the demands of World War II. The war transformed California from a primarily agricultural state to an industrial power. Although much of the state’s industry converted to the production of consumer goods in the postwar period, industries closely linked to the military remained a pillar of the California economy212 In Sacramento County, 130,824 residents registered for the draft and 14,000 signed up to be Civil Defense volunteers. The McClellan and Mather Field military bases grew exponentially, providing thousands of jobs to Sacramentans during the war. By 1943, McClellan alone employed 22,000 workers. The military bases would remain active following the end of the war in 1945, as World War II was eventually supplanted by the Cold War. The North Highlands and Rancho Cordova suburbs developed around the McClellan and Mather Field bases, respectively, in response to their increased employment opportunities. Residential development also occurred in the Del Paso neighborhood, the location of the Liberty Iron Works that produced Jenny planes for the war. Suburban development began with the onset of World War II and would continue with the return of Sacramentans serving in the war. The city projected this population growth to the year 2000 and envisioned that Sacramento would have 400,000 to 800,000 residents as well as an expanded city boundary containing thousands of annexed acres. The Chamber of Commerce predicted a city skyline in which “a half dozen more office buildings from fourteen to twenty stories” would dwarf the stately Elks Temple, the Cathedral of

210 Morrison, “How World War II Changed the Face of Sacramento,” Capital Public Radio. 211 The War: Sacramento California, PBS.
212 California Department of Transportation (CalTrans), “Tract Housing in California, 1945-1973: A Context for National Register Evaluation,” (Sacramento: California Department of Transportation, 2011), 9-13.

ENVIRONMENTAL RESOURCES

GENERAL PLAN TECHNICAL BACKGROUND REPORT 6.3-88 CITY OF SACRAMENTO the Blessed Sacrament, the State Capitol Building, and the California Western Life Insurance Company Building, which were collectively known as the “Big Four.”213 McClellan Air Force Base
The area surrounding McClellan Air Force Base was first named Rancho Del Paso. John Sutter, whose claim to the land was dubious, deeded the land to Eliab Grimes, Hiram Grimes, and John Sinclair. Prior to the 1840s the land was used primarily for grazing animals. In 1849 the deed was sold to Samuel Norris, who held Rancho del Paso from 1849 to 1862. Two attorneys, James Ben Ali Haggin and Lloyd Tevis, became the owners in 1860 when Morris lost the ranch due to debt from litigation challenging his deed. In 1873 John Mackey was hired as rancho superintendent. His skill in horse training, coupled with Haggin’s wealth and enthusiasm, and the rancho’s environment combined to make Rancho del Paso famous for its racehorses. In 1910 Haggins and Tevis sold the rancho to the Sacramento Valley Colonization company.

By 1930 San Diego’s Rockwell Field, an Aviation General Supply and Repair Depot, was quickly becoming obsolete. In 1935, a bill calling for six new military bases was passed.. While originally lobbying efforts focused on reopening Mather Field, the decision was made to open an entirely new repair base. Mather was located on the far side of the Southern Pacific Railroad tracks, meaning aircraft could not be transported to or from the river without building a large underpass under the railroad. The McClellan site, which opened in 1939, was more strategically located—next to the main line of the railroad and close to the Sacramento River. In 1943 the Sacramento Air Depot employed nearly 22,000 military and civilian personnel.

The base continued to be used throughout the Cold War. The majority of North Sacramento, the location of McClellan, was annexed by the city in the 1960s (see Figure 7). The Base Realignment and Closure (BRAC) Commission announced McClellan’s closure in 1995.214 The Parker Homes area, a housing development originally constructed as military housing during World War II, was built southwest of the base. The area was bisected when Interstate 80 was constructed. It was annexed to the city with the rest of North Sacramento in the 1960s.215 Mather Air Force Base
The Liberty Iron Works, formerly the Globe Iron Works, located on Del Paso Boulevard in North Sacramento was awarded a contract by the United States Government to construct Curtiss JN-4 “Jenny” aircrafts for World War I. These small planes were the first mass-produced aircraft in the world, and many were built in Sacramento.216 In 1918, the Federal War Department agreed to locate the new Mather Field in or near Sacramento as a training ground. City leaders welcomed the new base. Its construction and needs pumped money into the local economy.217 Established after the U.S. entry into World War I, Mather Air Force Base is located on land once known as Rancho San Juan to the east of Rancho del Paso, in the modern-day city of Rancho

213 Avella, Sacramento: Indomitable City, 114.
214 Maurice A Miller et al, McClellan Air Force Base 1936-1982, A Pictorial History (McClellan Air Force Base, CA: Air Logistics Center Office of History, 1982), 1- 57.
215 Sacramento Housing and Redevelopment Agency, “Mather/McClellan Merged Project Area Implementation Plan,” 19, accessed 1 April 2014,
http://www.shra.org/Portals/0/pdf/Redevelopment_CommunityRevitalization/Plans/101.MatherMcClellan%20Merged%20Implementation%20Plan.pdf. 216 KVIE. “The Role of World War I Airplanes in Sacramento’s History,” (7 June 2010), accessed 31 December 2012, http://on.aol.com/video/the-role-of-world-war-i-airplanes-in-sacramentos-history-300995504?icid=video_related_0. 217 Avella, Sacramento: Indomitable City, 85.

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Cordova. In 1920, the Sacramento Chamber of Commerce began lobbying to keep Mather open. Despite the effort, the Army closed the base in 1932. However a relatively short time later in 1941, the Army Air Corps reopened the base as a flight training school, enlarging it by several thousand acres. The base was closed in 1993 as a result of decommissioning under the 1988 BRAC Commission.218

Figure 39. Aerial photo of Mather Air Force Base in 1942. [Center for Sacramento History, Silver Wings Museums-Mather AFB Collection, 1994/032].

After-effects of the War
A nation-wide impact of the war effort was a post-war temporary shortage in building materials needed for the returning soldiers and their soon-to-be growing families and businesses. Some building systems developed for the war effort, such as Quonset huts, and other structures fabricated from experimental materials, began to be used in general construction projects due to the lack of traditional building materials. The “modern movement” aesthetic embraced these experimental, non-traditional materials and methods of construction. Several Quonset hut structures can be found throughout Sacramento and the Eichler residences in the South Land Park are evoked the design aesthetic that grew from use of new, non-traditional materials and

218 Miller et al, McClellan Air Force Base. 1-17.

ENVIRONMENTAL RESOURCES

GENERAL PLAN TECHNICAL BACKGROUND REPORT 6.3-90 CITY OF SACRAMENTO designs, among other influences. Also, many returning soldiers and sailors, who shipped out to World War II’s Pacific Theater from California, were enamored with the state and came to California with their new “baby boom” families, instigating much of the subdivision development of the Post War era.

Figure 40. Dedication Day at McClellan Air Force Base, 28 April 1939 in McClellan Air Force Base 1939-1982: A Pictorial History (Office of History, Sacramento Air Logistics Center, 1982), 35.

Cultural Shifts: Internment, the Bracero Program, and African-American Migration The economy may have improved greatly with the expansion of the military bases, but not all cultural groups benefited from the production and manufacturing boom in Sacramento. The internment of Japanese families living in the western United States and the establishment of the Bracero Program in the 1940s greatly changed the region’s cultural landscape.

On February 19, 1942, President Franklin D. Roosevelt issued Executive Order 9066, which gave the military broad powers to ban any citizen from a 50- to 60-mile-wide coastal area stretching from Washington State to California and extending inland into southern Arizona. The order also authorized the establishment of assembly centers to be governed by the military in California, Arizona, Washington State, and Oregon.219 Beginning in May of 1942, the Japanese residing in Sacramento, including American citizens, were given a one-week notice to abandon

219 “Executive Order 9066: The President Authorizes Japanese Relocation.” American Social History Project. Accessed 5 December 2012, http://historymatters.gmu.edu/d/5154/.

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their homes, farms, and businesses and were sent to inland internment camps. They were allowed to bring only what they could carry.220

By May 13, 1942, 3,800 Japanese in Sacramento County, including Robert Mastui, who would later become a member of the US House of Representatives representing Sacramento, were bussed from Sacramento Memorial Auditorium to an assembly point northeast of Sacramento called Walerga Alien Induction Center. From this center, families were transferred to Tule Lake, located near the California-Oregon border. Over the course of the war, more than 7,000 Japanese from Sacramento would be sent to internment camps; only 59 percent would return.

When families did return, many found that their former homes and businesses had been occupied by other people and they encountered restrictive housing covenants. Others followed agricultural pursuits in Elk Grove, Florin, and the Pocket areas of Sacramento.221 In 1942, the United States Government developed the Bracero Program to bring Mexican “guest laborers” to fill the vacancies left by Americans who had enlisted in the war and, especially in California, to replace the Japanese agricultural workers who had been sent to internment camps. Workers were concentrated in California, Texas, and the Chicago area. The program guaranteed payment of at least the prevailing area wage received by American workers; employment for three-fourths of the contract period; adequate, sanitary, and free housing; decent meals at reasonable prices; occupational insurance at the employer’s expense; and free return transportation to Mexico at the end of the contract. In reality, however, many of these rules were violated. The Mexican migrant farm workers often suffered deplorable living conditions, were not paid equal wages, or were not paid at all.222 In Sacramento, Mexican workers were concentrated in the Alkali Flat neighborhood near the Southern Pacific rail yard and shops, the West End, and along Franklin Boulevard. Through the 1940s, Mexicans made up between 40 and 45 percent of the labor force in Sacramento canneries. As a result of the influx of Mexican workers, 12th Street in the Alkali Flat area became a center of Mexican businesses.223
Figure 41. Bracero Program. Pictured above is a photo believed to have been taken during the 1940s that shows members of the Bracero program using short-handled hoes in a California field.

Courtesy of the University of the Pacific.

220 The War: Sacramento California, PBS.
221 Avella, Sacramento: Indomitable City, 108.
222 Bracero History Archive, Center for History and New Media (2012), accessed 7 December 2012, http://braceroarchive.org/.
223 Avella, Sacramento: Indomitable City, 110.

ENVIRONMENTAL RESOURCES

GENERAL PLAN TECHNICAL BACKGROUND REPORT 6.3-92 CITY OF SACRAMENTO With the build-up of military bases, families of all ethnicities began migrating to the area. Like many Sacramentans, African-Americans had also suffered during the Great Depression. While some of Sacramento’s earliest settlers were African-American, Sacramento was a raciallycharged city—McClellan was a segregated base and blacks were banned from public service in many facilities—and by 1940 the African-American population had reached 1,500. Many African-American families rented homes and businesses that had been previously lived in by Japanese families.

They [the Japanese] were the main source of a lot of the retail businesses and stuff. And they had to leave all of that. They left big two-story homes and they would arrange for blacks to rent those—blacks that were migrating in that had good jobs. They must have had some kind of an agent or something, and they would rent to us freely.224 Many Japanese residences and businesses were located in Sacramento’s West End neighborhood, and in 1940 the heart of Japantown was on 4th Street between L and O Streets.225
African-Americans, both free and enslaved, were part of Sacramento since the days of the Gold Rush. African American miners, laborers, and businessmen (and some women), then numbering only in the hundreds, worked hard to establish an economic foothold in Gold Rush Sacramento. In 1850, a black church was founded—St. Andrews American Methodist Episcopal, located on 7th between G and H Streets. From 1850-1880, Sacramento’s AfricanAmerican community established the social, political, and religious foundations for a small but growing population. The outbreak of World War II had lasting effects on African-Americans in the Sacramento area. Business opportunities were plentiful, due to the evacuation of Japanese Americans. The war also caused a huge surge in the number of blacks moving to California from the southern states. Most were attracted by the rapid increase of defense-related employment during the war. Many settled in California after the war in order to live in a less restricting society. The post-war period saw a buildup of professional infrastructure in the African American community that was able to engage in Civil Rights issues to effectively challenge social barriers to their advancement.226
The Automobile and a Shift to Suburbs
Near the end of World War II, the National Federal Aid Highway Act of 1944 called for the creation of a national system of interstate highways “so located, as to connect by routes, direct as practical, the principal metropolitan areas, cities, and industrial centers, to serve the National Defense, and to connect at suitable points routes of continental importance in the Dominion of Canada and the Republic of Mexico.”227
From California Department of Transportation Post-War Tract Housing Context:

Automobile purchases were another large part of the increase in consumer spending during the postwar years. Annual domestic production of automobiles rose from two

224 The War: Sacramento, California, PBS.
225 “Northern California, Sacramento.” Japantown Atlas (15 March 2008), accessed 8 January 2013, http://japantownatlas.com/map-sacramento.html.
226 Clarence Caesar, “An Historical Overview of Sacramento Black Community 1850-1980,” (master’s thesis, California State University Sacramento, 1985), v-viii, 39. 227 Federal Highway Administration, “Interstate System,” accessed 3 January 2013, http://www.fhwa.dot.gov/programadmin/interstate.cfm.

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million in 1946 to eight million by 1955, while motor vehicle registrations more than doubled, from about 26 million in 1945 to 54 million in 1956. This growth in auto ownership coincided with a decline in the use of busses, streetcars, and trains. Transit ridership within metropolitan areas in the U.S. peaked in 1947 and began a long, steady decline thereafter.228 The geographical spread and low population densities of the postwar suburbs, along with the increasing dispersion of employment and shopping centers, made transit impractical for most people living outside the older and denser urban areas. Los Angeles led the nation’s major cities in both rates of auto ownership and abandonment of public transportation. By the end of the 1950s, 95 percent of all trips in Los Angeles were by private automobile.229

As in the rest of the United States, much of the postwar housing boom in California predated the construction of the interstate freeway network. In general, freeway construction was neither a cause nor a means of metropolitan expansion in the late 1940s and 1950s. President Eisenhower signed the Federal Aid Highway Act into law in 1956, and many of California’s most important freeways remained under construction more than a decade later. Where freeways were planned before or shortly after the war, development was drawn to those corridors, even when the actual construction of the freeway was years away. In many other areas, builders anticipated that existing roads and highways would be sufficient or would be improved and expanded to accommodate future growth. Only a few of the earliest freeways, such as the Arroyo Seco Parkway in Los Angeles and the North Sacramento freeway were open by the end of the 1940s. The substantial extension of metropolitan freeways in the late 1960s and 1970s brought about a second phase of suburban growth, more extensive than the initial postwar boom.230

At least initially, the new freeways allowed commuters to live farther from their places of work without a significant increase in commuting time. The benefit of more distant but less expensive land (and therefore more affordable housing) began to compete with the benefit of proximity to employment centers, leading to the explosive physical expansion of metropolitan areas. The migration of jobs from cities to suburbs followed close behind the growth in suburban population. More than three quarters of all new manufacturing and retail jobs created between 1950 and 1970 were located in suburban areas.231

By 1973, suburban employment exceeded city employment.232 This later phase of postwar growth saw the beginning of “edge cities,” with mid-rise and even high-rise office buildings and shopping malls forming new employment and retail centers adjacent to freeway interchanges, well beyond not only the older central cities and streetcar suburbs, but much of the earlier phase of postwar suburban growth as well.…233

228 Francis Bello, “The City and the Car,” in The Exploding Metropolis, William H. Whyte, Jr., ed. (Doubleday & Company, 1958), 58.
229 Bello, “The City and the Car,” 58.
230 Larry Ford, Cities and Buildings: Skyscrapers, Skid Rows, and Suburbs (Baltimore: Johns Hopkins University Press, 1994), 171-72.
231 Lawrence B. De Graaf, “African American Suburbanization in California, 1960 through 1990,” in Seeking El Dorado: African Americans in California, De Graaf, Kevin Mulroy, and Quintard Taylor ed. (Seattle: University of Washington Press, 2001), 406.
232 Peter O. Muller,”The Outer City: The Geographical Consequences of the Urbanization of the Suburbs,” in The Suburb Reader, Becky M. Nicolaides and Andrew Wiese, ed. (Routledge, 2006), 363. 233 Joel Garreau coined the term ‚edge cities‛ to describe the exurban office and retail clusters that have developed around freeway interchanges. See Edge City: Life on the New Frontier (Anchor Books, 1991).

ENVIRONMENTAL RESOURCES

GENERAL PLAN TECHNICAL BACKGROUND REPORT 6.3-94 CITY OF SACRAMENTO The postwar metropolitan region is often imagined as a central city dominated by a downtown business district and surrounded by bedroom suburbs. However, this image was accurate only briefly, and then only as a snapshot of a constantly evolving metropolis. By the mid-1970s, most American metropolitan areas had become complex and multi-centered entities, with housing, retail, and employment widely dispersed across an area far greater than that of prewar metropolitan areas.234 By the late 1940s, with 2.2 cars for every person in the city, Sacramento had one of the highest per capita automobile registration ratios in the world.235 As traffic congestion increased and commuting across town became difficult, Sacramento’s Traffic Division Police Chief, Daniel J.

Bennett, encouraged the city council to adopt one-way streets, increase off-street parking, and eliminate on-street parking on the busiest streets. As the ownership of automobiles rose, the need for public transportation decreased and the need for public parking garages increased. In 1947, the city’s streetcar system was removed.

As transportation patterns and preferences shifted to a greater reliance on highways and trucking, many canning and other industrial operations and jobs were relocated from Sacramento’s waterfront areas to places outside of the Central City, where the land was less expensive and it was possible to build larger processing complexes more cheaply. In 1947, the Campbell’s Soup Company opened a plant south of the city on Franklin Boulevard, and was railserved when it was constructed. The facility is still adjacent to a functioning freight line. Most canning facilities received produce via local drayage, received cans and shipped finished product via rail. The plant, closed in 2013, was the company’s oldest facility in the United States, and the Campbell’s Soup Company had been one of the top purchasers of tomatoes in the Central Valley.236 The Hollywood Park, Sutterville Heights, and Freeport Village neighborhoods developed in the vicinity of the plant to house employees. Residents began to move out of downtown Sacramento core to neighborhoods closer to their places of work In 1954, the Eisenhower administration revised redevelopment laws to de-emphasize the relationship to public housing and extend funding to infrastructure projects. Redevelopment projects generally involve demolition of “blighted” areas and construction of new buildings/infrastructure. In Sacramento’s West End, the new construction primarily took the form of government buildings, parking lots, and highways.

Annexation
While redevelopment projects were underway in the West End, the City of Sacramento under Mayor Barley Cavanaugh, Jr., annexed 27 neighboring districts between 1946 and 1955, increasing the size of the city by nearly ten square miles. It was during this period that the River Park, Colonial Heights, Fruitridge, South Land Park, and Coloma Heights neighborhoods were annexed. Although Sutterville Heights, Arden Arcade, and North Sacramento initially resisted annexation because residents feared higher taxes, these communities became a part of the city in 1947, 1959, and 1964, respectively.237 The City of Sacramento Annexation History map demonstrates Sacramento’s growth during this period (see Figure 7).

234 CalTrans, Tract Housing in California,17 -8.
235 Burg, Sacramento’s K Street, 117.
236 Bill Lindelof, “Sacramento’s I Street Bridge Celebrates 100 Years,” Sacramento Bee (4 May 2012), accessed 10 December 2010, http://www.sacbee.com/2012/05/04/4461242/sacramentos-i-street-bridgecelebrates.html. 237 Avella, Sacramento: Indomitable City, 116.

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The shift from public transportation to private automobiles was in many ways beginning to shape the location of services and patterns of development in the Sacramento area. The development of new residential suburbs generally included related services and businesses, often in the form of strip malls and commercial corridors along major arterials. Unlike the businesses downtown, the new suburban strip malls had surface parking lots for automobiles.

Traffic congestion and limited parking deterred residents from coming downtown after work and on the weekends, and the proximity and convenience of the new strip malls to their homes made them particularly popular. In 1946, real estate developer Jeré Strizek opened the Town & Country Village on Fulton and Marconi Avenues. Following this model, Joseph Blumenfeld and James J. Cordano opened Country Club Center in 1951 on El Camino Avenue. Developed by Philip Heraty and William Gannon, the Swanston Estates Shopping Center (later known as the Arden Fair Mall) opened in 1957. Located directly off of the North Sacramento Freeway (Business 80), the 30-acre site lured many of the large department stores away from the downtown, including Hale’s, Kress, and Sears, Roebuck & Co.238 In 1958, 342 stores remained on K Street, Sacramento’s former retail corridor; by 1965, only 290 stores remained.239

238 Lance Armstrong, “Arden Fair Mall has Grown, Evolved with the Times,” Valley Community Newspaper (14 January 2010), accessed 3 January 2013, http://www.valcomnews.com/?p=216. 239 Burg, Sacramento’s K Street, 117, 134.

ENVIRONMENTAL RESOURCES

GENERAL PLAN TECHNICAL BACKGROUND REPORT 6.3-96 CITY OF SACRAMENTO Figure 42. Map of annexations in Sacramento from the Sacramento Bee from 1966. [Center for Sacramento History, Lorraine W. Stephens Collection, 2004/064].

Several prominent Modernist architects and builders are associated with residential CULTURAL RESOURCES: APPENDIX

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communities in Sacramento and its vicinity, including Joseph Eichler, Carter Sparks, and the Streng Brothers. In 1955, Eichler and developer Moss & Moss opened the first units in their Eichler Homes development in South Land Park Hills. Eichler, who previously built homes in the Palo Alto area, selected Sacramento as the location for this planned residential community because of the stability of its economy, “its high retail sales, the increasing population of civil servants and military personnel, and the reputation of the south Sacramento suburbs as a desirable residential area.”240 Approximately sixty homes were built between 1955 and 1956, all of which were Jones & Emmons-designed three- or four-bedroom models.

Architect Carter Sparks and the Streng Brothers formed a successful collaboration that stretched from 1959 and 1989. One article, focused on Streng Brothers homes in the greater Sacramento area, states that “Bill and Jim Streng built close to 4,000 homes, all but 1,000 modern in style, in 40-some subdivisions and on individual lots. They worked almost entirely with a single architect, Carter Sparks, a dedicated modernist who also built dozens of custom homes for individual clients.”241 A Streng Brother brochure from 1976 shows that the company had by then constructed homes in dozens of locations across Sacramento, Davis, Woodland, Winters, Carmichael, and the Folsom Lake area.242
Post-War Housing
From California Department of Transportation Post-War Tract Housing Context, Chapter 7 Patterns of Growth and Tract Location
The subdivision or tract was the building block of postwar suburban expansion. The cost of running utilities to new areas was steep enough to make gradual linear expansion impractical.

Instead, entire subdivisions were constructed to defray the cost of providing utilities.

Postwar housing tracts, designed for auto use and not dependent on the expansion of existing public transit networks, were often located well beyond the built-up areas of cities. In contrast to streetcar suburbs, growing incrementally around the perimeters of their cities, these new tracts were often set (at least initially) amid agricultural land.

However, the locations of these new housing developments were not as haphazard or arbitrary as some observers believed. Rather than random sprawl on any available parcel, proximity to employment centers strongly influenced developers’ choices in locating new housing.

Tract Size
Postwar housing tracts in California range in size from infill subdivisions of fewer than 20 houses to new communities with thousands of housing units… The smallest tracts may not exhibit the typical curvilinear street pattern of the period, due to the constraints imposed by the size and shape of the parcel. These small tracts can be found as infill or redevelopment within older urban neighborhoods and streetcar suburbs as well as in areas that were largely undeveloped until the postwar period.

240 “Eichler Home Units Are Opened To Public,” Sacramento Union (15 May 1955), 21 in Eichlerific: Eichler Homes in Sacramento, “1955 Newspaper Article: Eichler Homes Opening in Sacramento” (30 April 2010), http://eichlerific.blogspot.com/2010/04/1955-newspaper-article-eichler-homes.html. 241 Dave Weinstein, “Greater Sacramento Strengs: Valley of the Atriums,” Eichler Network, accessed 12 September 2012, http://www.eichlernetwork.com/article/greater-sacramento-strengs-valley-atriums. 242 “Carter Sparks + Streng Bros. Homes = ‘Solution for Contemporary Living in the Sacramento Valley,’” Eichlerific:

Eichler Homes in Sacramento (26 July 2010), accessed 12 September 2012, http://eichlerific.blogspot.com/2010/07/carter-sparks-streng-bros-homes.html.

ENVIRONMENTAL RESOURCES

GENERAL PLAN TECHNICAL BACKGROUND REPORT 6.3-98 CITY OF SACRAMENTO Tract Housing in California, 1945-1973
Postwar population growth, and therefore the size of the market for new housing, varied among the state’s major metropolitan areas and smaller cities. This had an effect on the relative sizes of housing tracts found in different urban and suburban regions… Prior land uses also strongly influenced the sizes of housing tracts developed in the postwar period. In areas where small farms were common, the new subdivisions are also typically small, reflecting the difficulty for developers of assembling two or more contiguous farms into larger tracts…
Alternatively, where builders were able to acquire large farms or ranches, the scale of postwar development is correspondingly large. In these instances, builders took advantage of opportunities to construct not just housing tracts, but entire new communities. At the largest end of the spectrum, a few vast landholdings that had remained intact since California’s rancho period were transformed into master-planned developments with multiple tracts as well as business and commercial centers.

Examples include Irvine in southern Orange County, Rancho Bernardo in San Diego County, and El Dorado Hills near Sacramento.

Tract Design
The typical postwar subdivision is immediately distinguishable by its street layout from older city neighborhoods and from many of the streetcar suburbs of the early 20th century. In contrast to the rectilinear urban grid, the street pattern of the postwar subdivision typically includes sweeping curves, loop streets, and cul-de-sacs…Curving streets limited sight distance and therefore cause motorists to drive more slowly than on long, straight streets. Cul-de-sacs and loops streets were used to discourage through traffic…
Long blocks are also common in the postwar subdivision, reducing the number of intersections and therefore the number of potential traffic conflicts and accidents... By constructing longer blocks with fewer cross-streets, developers were able to reduce their infrastructure costs by limiting the amount of paving and curbing required, and retain a larger portion of the tract for house lots.

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Figure 43. Comparisons of postwar and prewar street layouts: At left is a portion of the North Highlands tract near Sacramento, built in the early 1950s. It exhibits the characteristic street layout of the period, including curved streets, long blocks, and a limited number of through streets. More than two-thirds of the intersections shown are three-way intersections. At the same scale at right is a portion of central Sacramento, platted in the 19th century. This older area has shorter blocks and about 100 more intersections, nearly all of which a four-way intersections. Blocks are narrower in North Highlands because there are no alleys.

Source: USGS “Rio Linda,” “Citrus Heights,” and “Sacramento East” quads, 1967. …The streetscape of a suburban tract includes not only the street itself, but also the curb, planting strip, street trees, sidewalks, and front yards. Many developers preferred rolled curbs (also called mountable curbs) because they were cheaper to install and eliminated the need for curb cuts at each driveway. Rolled curbing is most frequently seen in tracts constructed from the end of World War II through the 1950s, and is less common in later tracts. The sidewalk would sometimes be placed next to the curb, particularly when rolled curbs were used, rather than having a planting strip between the curb and sidewalk… Developers sometimes planted street trees, either in the planting strips or the front yards. While the rear yard was private space for the family, the front yard, although privately owned, was visually part of the public realm.

Cluster Planning
A new method of subdivision or tract design, cluster planning, appeared toward the end of the 1950s and became increasingly popular in planning circles during the 1960s.

Variously referred to as “cluster zoning,’” “planned unit development,” or “open space communities,” cluster planning involved setting aside some portion of a tract as parkland or undeveloped green space, with the housing more densely grouped on the remaining land...

ENVIRONMENTAL RESOURCES

GENERAL PLAN TECHNICAL BACKGROUND REPORT 6.3-100 CITY OF SACRAMENTO Figure 44. CalTrans, Tract Housing in California, 50.

Community Building
While many merchant builders focused on constructing subdivisions of houses only, some of the larger builders planned for the inclusion of schools, shopping centers, and civic buildings such as libraries and fire stations in their larger developments. Merchant builders who engaged in development at this scale were also called “community builders,” in recognition of their role in creating not just housing tracts but new communities...

Multi-Family Housing
…The single-family detached house was the predominant housing type throughout the United States from the end of World War II through the 1950s, comprising more than 80 percent of all new housing construction.13 The proportion of multi-family housing CULTURAL RESOURCES: APPENDIX

CITY OF SACRAMENTO 6.3-101 GENERAL PLAN TECHNICAL BACKGROUND REPORT

(apartments and condominiums) grew steadily in the 1960s, however, surpassing 40 percent of all new housing units constructed each year from 1968 through 1973… In California, the proportion of multi-family housing began to increase in the late 1950s and grew to become a majority of the new housing units built from 1962-64 and again from 1969-73. Apartment and condominium construction subsided abruptly with the recession of 1974 and never again achieved the pace of construction seen in the 1969-73 period… While some of the multi-family housing constructed during the boom period consisted of urban high-rises, including urban renewal projects, much of it took the form of low-rise, garden apartment complexes in suburban areas. These typically consisted of multiple two-story buildings with separate, common parking shelters. Some of the larger apartment and condominium complexes had layouts based on cluster planning principles, with considerable areas of open space…Townhouses, consisting of attached two-story units, also became increasingly common throughout the 1960s and into the 1970s. These developments changed the face of the suburbs.243

Sacramento Housing and Redevelopment Agency and its Programs In reaction to the Great Depression, the Federal Government created the Federal Housing Authority (FHA) through the National Housing Act to address the problems of inadequate and neglected housing conditions. The FHA had the power to lend money to private and public entities in order to finance the clearing of slums and the construction of public housing and to buy, condemn, sell, or lease properties during the development stages of new projects. In 1941, the FHA published A Handbook for Urban Redevelopment for Cities in the United States, a manual followed in 1949 by Urban Redevelopment and Housing: A Plan for Post-War. These publications culminated in the passage of the 1949 Housing Act, which included a chapter on slum clearance.244

The Sacramento Housing and Redevelopment Agency outlined the “conventional renewal process” in a 1978 publication. The redevelopment process has seven steps:
 Planning: The first step involved selecting project areas within a designated development area and preparing a plan that indicates the manner in which the area should be developed to conform to the city’s master plan.
 Financing: The federal government advanced the majority of the cost of planning a project, but loans had to be paid back and the Agency had to demonstrate its ability to contribute 1/3 of the net project costs.
 Acquisition: The goal in this stage of the process was to acquire land in an efficient and equitable manner.
 Relocation and Community Services: The adequate rehousing of families, individuals, and businesses displaced from a project area was a chief responsibility of the Agency.  Demolition: Once buildings were vacant, demolition contracts were awarded.  Site Improvement: Improvements such as the installation of utilities, sewer systems, storm drainage systems, curbs and gutters began after demolition.  Disposition: Once the land was clear and assembled for new construction, it was sold to private

243 43.-55
244 Lastufka, “Redevelopment of Sacramento’s West End, 1950-1970.”

ENVIRONMENTAL RESOURCES

GENERAL PLAN TECHNICAL BACKGROUND REPORT 6.3-102 CITY OF SACRAMENTO developers.245
The following section provides an overview of Sacramento Housing and Redevelopment Agency project areas from the 1950s through the 1970s and the neighborhoods affected by them.

Redevelopment Area No. One
From Sacramento Housing and Redevelopment Agency, “Housing and Development Programs”:

A 65-block portion of the Central Business District of Sacramento, once prime commercial land, was a classic example, as late as 1958, of an area victimized by the City’s unbridled growth. The area, bounded by the Sacramento River on the west and the State Capitol Building on the east, was abandoned to the forces of neglect and changed land use. It contained one of the worst skid rows west of Chicago. Run-down hotels, dance halls, pawn shops and bars made up much of the area. One twelve-block area in particular had 167 bars and wine shops. Flights, stabbings, murders, prostitution and fires were daily occurrences.

Commercewise, the strong relationship between river traffic, railroads, industry and business no longer existed. Yet, the old pre-fabricated houses shipped by boat from the East Coast in the 1850’s remained. They were dilapidated, and seriously impaired the important western approach to California’s capital city.

Since the late 1920’s, the commercial center of this colorful and historically rich city— largely a product of the gold rush days—had moved eastward away from the deteriorating core. While the public financial burden of servicing the area was growing, tax revenue was decreasing each year.

Containing eight percent of the total city area and 7.5 percent of the population, the area had 26 percent of the fires, 36 percent of the juvenile delinquency, 42 percent of the adult crime and 76 percent of the tuberculosis cases.

The Beginning of Change
On February 3, 1950, the City Council designated the first 60-block Redevelopment Area No. One (enlarged to 62 blocks in 1951, 65 ¼ blocks in 1958, and to 75 ¼ blocks in 1961). In September, 1950, the city council activated the Redevelopment Agency pursuant to the provisions of the California Community Redevelopment Law of 1945, and appointed five resident electors on December 14, 1950, to serve as Agency Members.

Given the Responsibility of revitalizing the area by the City Council, the Redevelopment Agency began its first acquisition of property in September, 1956. Relocation of residents and businesses into standard structures, demolition of buildings, and resale of the land to developers, all in accordance with state law and the adopted Redevelopment Plan, followed.246

245 Sacramento Housing and Redevelopment Agency (SHRA), Housing and Redevelopment Programs (Sacramento, CA. 1978), 15-6.
246 SHRA, Housing and Redevelopment Programs, 14-5.

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CITY OF SACRAMENTO 6.3-103 GENERAL PLAN TECHNICAL BACKGROUND REPORT

Figure 45. This map depicts the boundaries for the Labor Market Area, Redevelopment Area No. 1, Capitol Mall Project Area No. 21, Capitol Mall Extension Project Area No. 3, and Capitol Mall Riverfront Project No. 4.

Sacramento’s West End neighborhood, the area west of the Capitol extending to the waterfront, was enveloped by
redevelopment efforts.

ENVIRONMENTAL RESOURCES

GENERAL PLAN TECHNICAL BACKGROUND REPORT 6.3-104 CITY OF SACRAMENTO Source: Ken Lastufka, “Redevelopment of Sacramento’s West End, 1950-1970: A Historical Overview with an Analysis of the Impact of Relocation,” (master’s thesis, California State University Sacramento, 1985), 7.

The West End
The West End, the area west of the Capitol to the waterfront that was also home to the Labor Market Area, was within the 60-block Redevelopment Area No. One (see Figure 10); as such it was among the first neighborhoods to be slated for redevelopment in Sacramento. Once filled with prosperous businesses during the railroad boom, the area fell into an economic decline by the 1920s that only continued during the Depression years. Seasonal laborers, many of whom worked for the city’s canneries and railroads, represented the majority of West End residents. The neighborhood had one of the largest concentrations of agricultural workers west of Chicago. In the late 1940s, the area remained home to seasonal workers and non-white residents who were unable to find housing in neighborhoods with restrictive covenants. The neighborhood contained employment offices, cheap hotels, and bars. It was also home to several ethnic enclaves, including Sacramento’s Chinatown and Japantown.247 In 1950, the Sacramento City Council designated the 60-block area comprising the West End as blighted. Documents drafted in 1954 illustrate the city’s plan to remove much of the area’s residential and business properties and replace them with state offices and wide boulevards. The plan would replace the low-income, and largely minority population of the West End and the small businesses it once contained with tall buildings and government employees. 248
By the mid-20th century, redevelopment activity displaced Japanese, African-American, and Chinese ethnic enclaves that historically existed in the West End. Many of these residents were forced out of low rent dwellings and placed in rentals with higher rents in different parts of the county. Most former West End residents were displaced to Oak Park, Del Paso Heights, and the Elder Creek area.249

247 Center for Sacramento History, Old Sacramento and Downtown, 12. 248 Lastufka, “Redevelopment of Sacramento’s West End, 1950-1970,” 7. 249 Caesar, 163-64.

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CITY OF SACRAMENTO 6.3-105 GENERAL PLAN TECHNICAL BACKGROUND REPORT

Figure 46. This wide-angle photograph taken December 4, 1968 shows the area bounded by 5th, 6th, J, and L Streets being prepared for construction of the underground parking garage of the Downtown Plaza. [Center for Sacramento History, Sacramento Bee Collection, 1983/001/SBPM12,683].

Figure 47. The new Downtown Plaza emerges on L Street, the heart of a new redeveloped business district. [Center for Sacramento History, James E. Henley Collection, 1997/046/0224].

Capitol Mall Project No. 2-A
From Sacramento Housing and Redevelopment Agency, “Housing and Development Programs”:

A 15-block portion of Redevelopment Area No. One was designated as the first project in February of 1954 and was called the Capitol Mall Project (Project 2-A). The final redevelopment plan for this area was prepared by the Redevelopment Agency and approved by the City Council in September 1955, after public hearings.

The redevelopment plan provides that the portion of the area fronting on K and L Streets, west of 5th Street, be developed for general commercial use as an extension of the Central Business District. Adequate off-street parking was included. The importance of safety and convenience for pedestrians was recognized by the planned elimination of vehicular traffic on K Street between 3rd and 7th Streets, and by creation of a landscaped shoppers’ mall (Downtown Plaza).

ENVIRONMENTAL RESOURCES

GENERAL PLAN TECHNICAL BACKGROUND REPORT 6.3-106 CITY OF SACRAMENTO The plan to provide a pleasing entry to the City and a suitable approach to the State Capitol Building was fulfilled. Capitol Mall, formerly Capitol Avenue, has been widened with a median grass strip and trees along each side. State office buildings and a City parking structure stand on Capitol Mall east of the Capitol Mall Project boundary line. In the project itself, the Capitol Mall is bordered west to 3rd Street by buildings of appropriate dignity, including: Federal Building, I.B.M. Building, Wells Fargo and Crocker National Bank Buildings, the McKeon office building complex consisting of the Insurance Exchange Building and the State Chamber of Commerce Building, the Plaza Towers Office Buildings, and the Sacramento Union Development.250 Sacramento lawmakers explored plans to convert the segment of K Street between 2nd and 12th streets to a pedestrian mall in order to compete with the new suburban strip malls.251 Capitol mall Extension Project No. 3
On October 9, 1959, the Agency submitted to the Department of Housing and Urban Development the first part of its application to proceed with an additional 10-1/4 block area –the Capitol Mall Extension Project (Project No. 3). This project, which borders the Capitol Mall Project on three sides, was planned for development of retail and office building facilities. The redevelopment plan for the project was adopted by the Redevelopment Agency on April 11, 1960 and by the City Council on June 16, 1960.

The Agency started the project during March of 1961…
Commercial Area
The area bounded by the 3rd-7th-J and L Streets was reconstructed with retailcommercial establishments and office buildings. The development of the area was designed to accomplish complete separation of pedestrian and vehicular traffic by the construction of Downtown Plaza on K Street, the construction of a two-bock underground parking garage between 5th-6th-J and L Streets, and by converting the interior streets to pedestrian malls.

Downtown Plaza Mall
Construction of the $450,000 first phase of the pedestrian mall between 4th and 5th on K Street began in November 1967 and was completed in August 1968. The second phase, from 5th to 7th Streets, began in the spring of 1971. The $1 million cost of the three-block mall was shared by the Redevelopment Agency and the federal government.

Victor Gruen Associates, the internationally famous architectural-planning firm, was the designer of the mall. The architects have described the mall as a “plaza –a place for people to congregate, a place for functions, exhibits and concerts, as well as for rest in an atmosphere of beauty…”252

250 SHRA, Housing and Redevelopment Programs, 17.
251 Burg, Sacramento’s K Street, 134-35.
252 SHRA, Housing and Redevelopment Programs, 19.

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CITY OF SACRAMENTO 6.3-107 GENERAL PLAN TECHNICAL BACKGROUND REPORT

Figure 48. This aerial photo, taken in 1964, shows redevelopment projects taking shape in the West End. [Center for Sacramento History, Frank Christy Collection, 1998/722/1417].

Capitol Mall Riverfront Project No. 4
From Sacramento Housing and Redevelopment Agency, “Housing and Development Programs”:

The general boundaries of Project No. 4 are: the Sacramento City Limits on the west; redevelopment Projects Nos. 2-A and 3 on the east; S Street on the south; and the Southern Pacific Railroad depot and freight yards on the north… The land uses of the project include: General commercial, Residential-Cultural, Special Commercial, Residential, Historic-Commercial, Heavy Commercial, and Public The Major elements of the project are the Old Sacramento Historic Area, Chinatown development, an Arts and Cultural Center, a Heavy Commercial Corridor, and a residential district near Capitol Towers (Project No. 2-A).253 Chinatown

253 SHRA, Housing and Redevelopment Programs, 21.

ENVIRONMENTAL RESOURCES

GENERAL PLAN TECHNICAL BACKGROUND REPORT 6.3-108 CITY OF SACRAMENTO A new “Chinatown” has been constructed on the two block bounded by 3rd, 5 th,
I, and J
Streets. The Development is centered around the Confucius Temple located at 4th and I Streets. Nine parcels were involved, ranging in square footage from 2,400 to 84,000— with development costs from $120,000 to $4 Million. All buildings have oriental architecture and many used materials imported from Hong Kong and Taiwan.

Chinatown provides 187 units of low-moderate elderly apartments, 72 low-moderate family apartments, commercial stores, offices and restaurants, and is serving as a base for the many Chinese family associations.

In 1865 all streets in the Chinatown area and neighboring vicinity were elevated to protect buildings against flooding; thus the natural terrain of the ground level is eight feet lower than the sidewalks or street level. At this lower level, a landscaped pedestrian mall was constructed. The mall features a multipurpose plaza for the shoppers and residents of Chinatown. Baronian and Danielson, landscape architects from San Francisco, were the designers of the mall.

All parcels in the Chinatown development are separated by the mall and landscaped courts. Chinese shops, restaurants and offices are on the lower level, additional commercial enterprises on the street level, and family association headquarters at the upper level of some structures.254

Old Sacramento
The historic area, comprising approximately 28 acres along the banks of the Sacramento River, is adjacent to the downtown central business district. Boundaries are the Sacramento River on the Wet, Capitol Mall on the south, I-5 freeway on the east, and the I Street Bridge on the north.

As the historic area was a blighted area, housing one of the worst skid row areas in the West, its revitalization is a great enhancement to the Sacramento community. Prior to the redevelopment the total area had a worth of approximately $2 Million. Upon completion $60 Million will have been spent on its restoration, adding significant tax dollars to the community. More importantly, Old Sacramento is one of the largest historic preservation projects in the United States with its preservation documenting important events such as the start of the Pony Express, the Central Pacific Railroad and the California Goldrush. Adding to the new businesses, restaurant and shops, the area is attracting tourists and visitors as a leisure time activity as well as a bustling business center.255

254 SHRA, Housing and Redevelopment Programs, 22.
255 SHRA, Housing and Redevelopment Programs, 23.

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CITY OF SACRAMENTO 6.3-109 GENERAL PLAN TECHNICAL BACKGROUND REPORT

Figure 49. Looking west from J Street, this photo from 1967 captures the progress of Interstate 5’s construction. What would become Old Sacramento is visible in the background.
[Center for Sacramento History, Frank Christy Collection, 1998/722/0832].

Located within arguably the most blighted section of the West End, the area now known as “Old Sacramento” became a federal redevelopment project overseen by the Sacramento Redevelopment Agency in the 1950s. Today a National Historic Landmark Historic District, Old Sacramento is located on the Sacramento River, where the city began. Old Sacramento is historically significant for its development during the Gold Rush, as a terminus of the Pony Express, and as the location of the western terminus of the first transcontinental railroad.256

256 SHRA, Housing and Redevelopment Programs, 23.

ENVIRONMENTAL RESOURCES

GENERAL PLAN TECHNICAL BACKGROUND REPORT 6.3-110 CITY OF SACRAMENTO Figure 50. Redevelopment efforts exposed some of Sacramento’s underground sidewalks. [Center for Sacramento History, Ted Leonard Collection, 2001/055 ff232-235].

During redevelopment, Old Sacramento’s raised streets and hollow sidewalks were exposed.

These areas were created from the 1850 through the 1870s during an effort to raise Sacramento’s business district to protect it from floodwaters. The remains act as physical reminders of the city’s efforts to prosper in a precarious location and become a suitable home for state government (see State Government Context).

As plans were laid for the new Interstate 5 project through Sacramento, many Sacramentans, notably Eleanor McClatchy, president of the McClatchy newspapers, lobbied to preserve the Sacramento River Embarcadero and some of its oldest buildings. McClatchy lobbied for routing on the west side of the Sacramento River; the selected route destroyed the Sacramento Bee building that was McClatchy’s highest priority for preservation. Ultimately, the new freeway was located further east of the river banks than the original plan. In the mid-1950s, Newton Cope rehabilitated one of the first buildings in Old Sacramento—the Sacramento Engine Company No. 3 on 2nd Street, which is currently used as a restaurant.257 The Old Sacramento Historic District was listed as a National Historic Landmark historic district in 1965.
258 Prior to the 1977 creation of the Secretary of the Interior’s Standards for the Treatment of Historic Properties, Sacramento’s City Historian, James Henley, historic rehabilitation architect Bob McCabe, and others, drafted detailed design guidelines for the district, including many façade restoration and reconstruction plans based upon historical photographs and documents. The district is comprised of restored and reconstructed buildings, with most on their original sites.259

257 Center for Sacramento History, Old Sacramento and Downtown. 258 Office of Historic Preservation, “Old Sacramento State Historic Park.” (2013), accessed December 2013, http://www.parks.ca.gov/?page_id=497.
259SHRA, Housing and Redevelopment Programs, 23.

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CITY OF SACRAMENTO 6.3-111 GENERAL PLAN TECHNICAL BACKGROUND REPORT

Del Paso Heights Community Development Program – Project No. 5 From Sacramento Housing and Redevelopment Agency, “Housing and Development Programs”:

The Del Paso Heights Neighborhood Development Program (NDP) was approved by the Department of Housing and Urban Development on April 1, 1970 and funds were made available to the Agency in July of that year.

The project area is comprised of 1,000 acres and contains about 8,000 persons, mostly in single-family homes. Fifty percent of the population is White, fifty percent Black, with a few Mexican-Americans. One-third of the buildings have been classified as standard, one-third as rehabilitation feasible, and one-third as substandard; and these buildings are scattered rather evenly throughout the area.

The first year eight-block target area, bounded by Dry Creek Road, May Street, Grand Avenue and South Street, was an area where 98 percent of the population of 300 was Black. The activities for the first year included construction of 18 units of rental housing, the rehabilitation of 25 homes, the demolition of 35 substandard homes, construction of 50 new single-family homes on existing vacant land and Agency-acquired lots, improvements to existing park and new park extension, and the construction of new streets, sidewalks, storm drains and street lights throughout the entire area. The cost of these activities was $1,063,427.

The second target area was a twelve-block area adjacent to the first year project, extending to Rio Linda Boulevard on the west. The activities for the second year included construction of a new branch library, clearance of land for 40 units of multifamily housing and 40 units of elderly housing which was completed in March, 1976, rehabilitation of eight homes, demolition of eight substandard homes, construction of thirteen single-family homes on existing vacant land and Agency-acquired lots, and construction of new streets, sidewalks, storm drains and street lights on Grand Avenue and Rio Lina Boulevard. The cost of the second year activities was $1,125,000.

The third, fourth, and fifth year activities were carried out in the second target area due to a cutback in funds. Third year activities included construction of a Neighborhood Health Center, acquisition of land for a proposed shopping center, demolition of six substandard homes, construction of a cross-over street, rehabilitation of eight homes and construction of one new single-family home. Fifth year activities included demolition of six substandard homes, construction of five new single-family dwellings, reconstruction of South Avenue with sidewalks, curbs, and gutters and street lights. The cost of third year activities was $800,000; fourth year activities cost $524,000, and extended fourth year activities approximately $594,000.260 Alkali Flat Community Development Program – Project No. 6 From Sacramento Housing and Redevelopment Agency, “Housing and Development Programs”:

The application for a Neighborhood Development Program in Alkali Flat was approved June 27, 1972 by the Department of Housing and Urban Development. The first year

260 SHRA, Housing and Redevelopment Programs, 27.

ENVIRONMENTAL RESOURCES

GENERAL PLAN TECHNICAL BACKGROUND REPORT 6.3-112 CITY OF SACRAMENTO NDP in Alkali Flat was from June 16, 1971 to June 15, 1973.

The Project area consists of 25 blocks of residential, commercial, and industrial property.

New zoning regulations were adopted on February 10, 1972 by the City Council so that improved long-range planning can be accomplished for the entire 25-block NDP area.

Certain blocks were designated for residential use and others for office, commercial, and park use.

The entire project area contains approximately 1,500 persons, primarily in rental dwellings. The racial distribution is approximately 50 percent White, 35 percent MexicanAmerican, and 15 percent Black and Oriental. Forty percent of the population is over 55 years of age.

In Alkali Flat $825,000 was used to carry out NDP activities for the first year in a twoblock target area bounded by 8th -10th-D and E Streets. One Hundred Forty-Three new
apartments, known as Washington Square, for low and moderate income families were built to replace the 62 substandard dwelling units and blighted warehouses formerly in the area.

The second year activity concentrated on completing site improvements for the first target area, including new streets, curbs and gutters…The plan is to develop low-income and conventional housing units and accomplish historical preservation where possible.261 Oak Park Community Development Program – Project No. 7
From Sacramento Housing and Redevelopment Agency, “Housing and Development Programs”:

The Oak Park Neighborhood Development Program was approved by the Department of Housing and Urban Development effect June 16, 1972.

The Oak Park Project Area is comprised of approximately 1,300 acres and has a population of approximately 14,000 people. The racial breakdown for the area is approximately 48.6 percent Black, 47.8 percent White, and 3.6 percent other… The first year target (1973-74) was comprised of a three-block area located in the northern section of Oak Park. The boundaries were 37th Street, Third Avenue, Santa Cruz Way and the property alignment between First and Second Avenues.262 First year activities are consisted of major and minor rehabilitation of approximately 26 singlefamily residences with the use of HUD grants and loans. The boundaries of the second year target area (1974-74) were 14th Avenue to the north, 16th Avenue to the south, South Sacramento Freeway to the west, and 34th Street to the east. The second year activities included cooperating with a Street Assessment District’s efforts to provide new streets, sidewalks, curbs.263

Subcontexts/Themes Not Included in This Evaluation
 Conventional Housing/Housing Projects

261 SHRA, Housing and Redevelopment Programs, 28.
262 SHRA, Housing and Redevelopment Programs, 30-1.
263 SHRA, Housing and Redevelopment Programs, 31.

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CITY OF SACRAMENTO 6.3-113 GENERAL PLAN TECHNICAL BACKGROUND REPORT

The subcontext of public housing projects for this context. The history of Sacramento’s housing projects requires further research, evaluation, and documentation.

As of 1978, the SHRA owned and operated over 1,000 units of low-rent housing in three projects in the City and County of Sacramento.

New Helvetia – 360 units
River Oaks – 400 units
Dos Rios – 268 units (includes 50 units scattered throughout the Del Paso Heights area)264
Transportation Systems
Sacramento continued to grow, both in population and through the annexation of land. The former Boeing Airways municipal airport constructed in 1931 off of Freeport Boulevard south of downtown was no longer capable of serving the city’s needs. In 1958, a new Sacramento Metropolitan Field (SMF) airport was designed for a site located in North Natomas, twelve miles northwest of the Capital City on Interstate 5. Construction began in 1964 and the new airport opened in 1967.265
By 1960, 75 percent of the state government employees arrived at work by automobile and in 1961, 630,000 people entered or left Sacramento’s downtown each day. The daily commute of workers in and out of the city created a transportation conundrum—although it caused congestion, suburban residents were living far enough away from downtown Sacramento that public transportation was not a viable option for many.266

The Elvas Freeway, which later became State Route 51, Business 80 (Business Loop 80) and the Capital City Freeway, was constructed between 1950 and 1955. It was the second freeway built north of the Sacramento’s central grid streets, as part of the incremental development of the city and region’s freeway system. The Elvas Freeway was implemented in part to lessen traffic at the cities three crossings of the American River—the Jiboom Street Bridge, the 16th Street Bridge, and the H Street Bridge. The freeway was widened from four to six lanes in 1965.267
In the late 1960s, Interstates 5 and 80 were completed, ameliorating traffic congestion, but unlike their German freeway counterparts, the US freeways, including Sacramento’s, were constructed in and through the existing city centers. Interstate 80 was designed to run through Sacramento along 29th and 30th Streets, where it would connect with Interstate Highway 50, which traversed W and X Streets. Huge swaths of land formerly containing residential neighborhoods and businesses were cleared in order to build the interstates around Sacramento. The new roads alleviated traffic congestion in and out of the city and also rerouted vehicular traffic that had once traversed Sacramento’s downtown to the periphery. With the completion of the freeway system, which encircled Sacramento’s Central City, Tower Bridge no longer remained the main entrance to the city. Reduced traffic in the city center began to negatively impact shops, restaurants, and other businesses downtown.

264 SHRA, Housing and Redevelopment Programs, 4.
265 Avella, Sacramento: Indomitable City, 124.
266 The California State Capitol Plan (Preliminary), December 1960, 4-8. 267 A.M. Nash, “New Elvas Freeway,” California Highway and Public Works (November-December 1954), 14, 16.

ENVIRONMENTAL RESOURCES

GENERAL PLAN TECHNICAL BACKGROUND REPORT 6.3-114 CITY OF SACRAMENTO Figure 51. (Left) The area around Third Street was cleared for the construction of Interstate 5 in1960. [Center for Sacramento History, Sacramento Bee Collection, 1983/001/SBPM Sacramento City Redevelopment].

Figure 52. (Right) Aerial of the nearly completed Interstate 5, 3 August 1970. [Center for Sacramento History, Sacramento Bee Collection, 1983/001/SBPM Freeway 2nd-3rd Street].

Transportation accessibility concerns also impacted business development in Sacramento’s downtown. To compete with the new Arden Fair Mall, Skidmore, Owings & Merrill Architects were hired to develop the West End Commercial Complex in the area bounded by 5th, 6th, J, and L Streets, and the necessary street closures to create the complex were realized through federal funding. In order to secure Macy’s as one of the mall’s flagship stores, the company stipulated that nearby freeway access was required. The desire expressed by Macy’s and other downtown businesses for easy freeway access factored into the preferred locations of new businesses and illustrated how dependent the region had become on the new freeway system.

On 4 December 1968, construction began on the West End Commercial Complex and its underground parking garage. Between 1969 and 1972, the K Street Pedestrian Mall was designed by Eckbo, Dean, Austin & Williams, or EDAW, a major Bay Area landscape architecture and urban planning firm, with construction by A. Teichert & Son Construction, and was built directly east of the West End Commercial Complex project. It utilized a blend of landscape, public sculpture, and water features.268 The Capitol Plaza Hotel complex located west of the mall was completed in 1979.

268 Burg, Sacramento’s K Street, 32-9.

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CITY OF SACRAMENTO 6.3-115 GENERAL PLAN TECHNICAL BACKGROUND REPORT

Figure 53. The beginning of redevelopment for the K Street Mall in1969. [Center for Sacramento History, Frank Christy Collection, 1998/722/1301].

Although some new commercial development downtown resulted from the construction of the freeway system in Sacramento, many neighborhoods were fractured by the construction of the new roads. “Taken together, the entire freeway system had the unfortunate effect of cutting off the original city from the outlying neighborhoods. It also cut the city off from the Sacramento River, which along with the railroad was a major part of the economy.269 Historic Themes and Property Types
The following section summarizes important themes relating to the history of World War II, and mid-20th century redevelopment, and transportation in Sacramento and identifies property types that reflect these themes. Significance and integrity discussions follow each property type so that additional resources relating to the history of World War II, redevelopment, suburbanization, and transportation may be evaluated in the field. The significance discussion describes the criteria for which a resource may be historically significant and the integrity narrative provides guidance to determine whether the resource retains sufficient integrity to convey its historic significance.

269 Center for Sacramento History, Old Sacramento and Downtown , 70.

ENVIRONMENTAL RESOURCES

GENERAL PLAN TECHNICAL BACKGROUND REPORT 6.3-116 CITY OF SACRAMENTO The primary historic themes and events which characterize the history of World War II, redevelopment, and transportation in Sacramento include:
 The shift from an economy focused on agriculture and railroad industries to one founded on state and federal government offices, military bases, and highway/freeway-based transportation;
 The influx of people from outside California who were drawn to Sacramento by available jobs;
 The exodus of people and businesses from the city center to newly developed suburban communities and annexed districts;
 Large-scale clearance and new construction projects funded by federal monies, including federal redevelopment programs; and
 The increasing popularity and availability of automobiles, the “car culture,” influenced how and where people lived, worked, traveled, and shopped, and shaped buildings, sites, and the city’s design.

Identification
For the purposes of determining eligibility for historic designation, four categories of resource types based on the previous discussion of property types have been developed. Each category includes certain specific types of resources as listed below:

1. Residential: This category includes a variety of single- and multi-family residential building types, and possibly their landscapes and subdivision configurations, that may be identified with World War II-era and post-war development and settlement patterns, that also may be identified with a post-War “Modern” design style.

Resources may be found both in neighborhoods developed in support of new military facilities established in Sacramento during the twentieth century, as well as in the new outlying post WWII subdivisions, some of which were annexed into the city.

2. Commercial: This category relates to the competition between downtown businesses and suburban commercial developers to attract customers.

Sacramento’s downtown, and the central city “J” and “K” Street corridors, were historically the region’s major commercial center, but popular shopping centers, and developments along major commercial corridors, were constructed outside the Central City to serve residents of new suburban developments. Design styles may also relate to both a post-War “Modern” aesthetic, and the “car culture” aesthetic, including “Googie Architecture.”

3. Infrastructure: This category relates to the forces that shaped broad development patterns and includes roads, highways/freeways, bridges and other ancillary structures.

4. Downtown Redevelopment Projects: This category includes various large-scale landassembly, building and planning projects constructed downtown, and, in the case of much of “Old Sacramento,” preservation.

Residential Properties
The years leading up to and immediately following World War II represent a shift in residential development in Sacramento. When the Southern Pacific shops and canneries located along the river CULTURAL RESOURCES: APPENDIX

CITY OF SACRAMENTO 6.3-117 GENERAL PLAN TECHNICAL BACKGROUND REPORT

were the largest centers of employment, workers typically resided close by. As the location of employment centers—new military bases and industrial complexes—shifted from Sacramento’s Central City to areas outside of the City, residential development followed. Initially, residential suburbs developed around these new employment centers: the North Highlands and Rancho Cordova areas around McClellan and the Del Paso area near the Liberty Iron Works—then part of the city of North Sacramento. The Hollywood Park, Sutterville Heights, and Freeport Village neighborhoods developed in the late 1940s in the vicinity of Campbell’s Soup’s new complex. This trend of residential development occurring outside of the Central City continued the 1950s through the 1980s. Mid-century designers and builders, Joseph Eichler, Carter Sparks, the Streng Brothers, Blomberg, and Lewis & Bristow, among others, constructed homes and planned neighborhoods in the South Land Park area, at River City Commons in Natomas, and greater Sacramento vicinities. Design of the new suburban developments contrasted with the historic gridiron street pattern of the city and featured more organic planning features, including cul-de-sacs and curvilinear streets. Single-family residences were typically one-story, utilized strong horizontal elements, which stressed the relationship of the structure to the land, indoor/outdoor living, use of new materials and construction techniques, and were designed in “ranch house,” “Usonian” block, or “modern,” architectural styles. Many included carports and incorporated building, site, and landscape design features which blurred the distinction between indoor and outdoor spaces. These post-World War II Era neighborhoods warrant further study to evaluate significance within the careers of prominent designers or builders, as potential historic districts, or as significant examples of the development of “Ranch” or post-war “Modern” design types in Sacramento.

Residential Buildings
Significance
Residential buildings may be found eligible under National Register Criteria A, B, and C; California Register Criteria 1, 2, and 3; and Sacramento Register Criteria i, ii, and iii. World War II-era and post-war residential development in Sacramento is closely tied to suburbanization.

Residential properties may be significant for their associations with a noted architect, landscape architect, builder, or with mid-century “Modern” design principles. Properties eligible for listing in the National Register under Criterion A, the California Register under Criterion 1, or the Sacramento Register Criterion i (event) should be at least 50 years old, and have a close association with an important historical event or a developmental pattern relating to the history of World War II, post-war suburbanization, redevelopment, and/or freeway-related transportation in Sacramento.

For properties to be listed under National Register Criterion B, California Register Criterion 2, or Sacramento Criterion ii (Person), residential properties should ideally be at least 50 years of age and should be closely associated with a significant person or persons associated with the history of World War II, post-war suburbanization, redevelopment, and/or freeway-related transportation in Sacramento.

For properties to be listed under National Register Criterion C, California Register Criterion 3, or Sacramento Criterion iii (Design/Construction), residential properties should be at least 50 years of age and should “represent the work of a master or possess high artistic values” and may also demonstrate distinctive characteristics of a “type, period, region, or method of construction.” Integrity

ENVIRONMENTAL RESOURCES

GENERAL PLAN TECHNICAL BACKGROUND REPORT 6.3-118 CITY OF SACRAMENTO In regard to residential properties, the seven aspects of integrity in order of importance should be: design, materials, association, setting, location, workmanship, and feeling; please note for local evaluations, that the Sacramento Register does not address integrity of “feeling.” World War II-era and post-war residential buildings may express regional suburban settlement patterns, experimental materials, new or non-traditional building technologies, blurring or blending of indoor/outdoor spaces, and stylistic preferences of the architects, landscape architects, builders and residents. Therefore, the aspects of design, materials, and workmanship are most important, conveying importance of building technology, craft, and artistic inclinations of designers, builders, and owners. Location and setting are important aspects, providing the physical and functional contexts for the resource, and recognizing many of the suburban singlefamily homes’ lots, street layouts, and landscape plans were part of the overall attraction. The aspects of feeling and association are also important, and the building should retain the ability to convey the historic sense of the neighborhood and association with a larger development (if applicable). Exemplary workmanship was not necessarily as highly valued, or needed, in the post-war era because experimentation with new materials and manufacturing techniques was more important than hand craftsmanship.

Commercial Properties
Commercial buildings in the war and post-war eras were generally, though not all, dedicated to a single use, such as office, retail, restaurant/entertainment; or, to other income-producing uses not related to the production, distribution, or repair of goods. Within Sacramento’s Central City, commercial property types historically developed along J and K streets, which served as Sacramento’s original commercial corridors. Post World War II “Modern” commercial buildings were constructed both in Sacramento’s Downtown and Midtown areas. Architects of note include, Rickey & Brooks; Starks, Jozens & Nacht; Harry Devine; Dreyfuss & Blackford; Herbert Goodpaster; and Dean Unger, among others.

Following World War II, developers began to build shopping centers, strip malls, and commercial buildings along the major commercial corridors within the new residential subdivisions developed., The commercial buildings were generally of a post-war “Modern” or a “car culture” aesthetic, often referred to as “Googie Architecture.” The “modern” building types in Sacramento often included inset first-floor bases and floor to ceiling glazing and doorways with upper story grille or solar fin screens over the walls of glazing. In Sacramento, several postwar gas stations clearly reflect the “Googie Architecture” design aesthetic. The new commercial areas and shopping centers were popular because they were convenient by car, contained many stores in one location, and often had large expanses of parking lots right out front. The Town and Country Village, developed by Jere Strizek in 1946 and the Arden Fair Mall, designed in 1957 as an outdoor mall, rivaled the shopping establishments located downtown. Portions of K Street were converted to a pedestrian mall in the 1960s and the West End Commercial Complex, or Downtown Plaza, was constructed to lure costumers back downtown. These postWar projects warrant further study to evaluate significance within the careers of prominent designers or builders, as potential historic districts, or as significant examples of the development of post-war “Modern” design types” in Sacramento.

Significance
Commercial buildings may be found eligible under National Register Criteria A, B, and C; California Register Criteria 1, 2, and 3; and Sacramento Register Criteria i, ii, and iii. Like its residential counterpart, World War II-era and post-war commercial development in Sacramento CULTURAL RESOURCES: APPENDIX

CITY OF SACRAMENTO 6.3-119 GENERAL PLAN TECHNICAL BACKGROUND REPORT

is often reflects the competition between traditional downtowns and neighborhood development, and suburbanization and the exodus of downtown businesses to suburban shopping centers and strip malls. Commercial properties may be significant as part of a larger development of a neighborhood or for their associations with society’s reliance on the automobile (sometimes referred to as “car culture”). Properties eligible for listing in the National Register under Criterion A, the California Register under Criterion 1, or the Sacramento Register under Criterion i (Event) should have been constructed at least 50 years ago and have a close association with an important historical event or a developmental pattern relating to the history of World War II, downtown/suburban business competition, redevelopment, and/or post-war “Modern” and/or “car culture” design aesthetics, and highway-related transportation in Sacramento.

For properties to be listed under National Register Criterion B, California Register Criterion 2, or the Sacramento Register under Criterion ii (Person), commercial properties should be at least 50 years of age and should be closely associated with a significant person or persons associated with the history of World War II, downtown/suburban business competition, redevelopment, post-war “Modern” and/or “car culture” designs, and highway-related transportation in Sacramento.

For properties to be listed under National Register Criterion C, California Register Criterion 3, or the Sacramento Register under Criterion iii (Design/Construction), commercial properties should have been constructed at least 50 years of age and should “represent the work of a master or possess high artistic values” and may also demonstrate distinctive characteristics of a “type, period, region, or method of construction,” particularly, the WWII and post-war design types, primarily post-war “Modern” designs and “car culture” or “Googie Architecture” Integrity
In regard to commercial properties, the seven aspects of integrity in order of importance should be: design, materials, workmanship, association, feeling, setting, and location; please note for local evaluations, the Sacramento Register does not address integrity of “feeling.” A commercial property typically expresses the values of the company or individual that built it and therefore it is important for the building to retain the bulk of its physical characteristics, especially its original design and materials. Location and setting are also important aspects, providing the context for the resource. Association with the building’s original builder/owner and era of construction are also important. Exemplary workmanship was not necessarily as highly valued, or needed, in the post-war era where experimentation with new materials and manufacturing techniques was the priority over hand craftsmanship.

Downtown Redevelopment Projects
The shift in development from the city center to the surrounding regions resulted in the isolation of some of Sacramento’s oldest communities, notably the area now called Old Sacramento and the Pocket areas located along the Sacramento River south of downtown, which became physically separated from the rest of the city by the construction of Interstate 5. Notable redevelopment projects in Sacramento’s downtown include the Capitol Mall; the K Street Pedestrian Mall; Downtown Plaza, a six-block shopping mall that includes a Macy’s department store built in 1963; the creation of the Old Sacramento Historic District, including the portion of the historic district that would become the Old Sacramento State Historic Park and its associated properties (e.g. the California State Railroad Museum); and the overall clearance

ENVIRONMENTAL RESOURCES

GENERAL PLAN TECHNICAL BACKGROUND REPORT 6.3-120 CITY OF SACRAMENTO and redevelopment of the larger West End neighborhood beginning in the 1950s. Some of these projects may be representative of mid-century planning and design principles. Properties in the area may be at least 50 years old, and therefore eligible for listing in the Sacramento, California and National registers. Other properties are nearing the 50-year threshold for historic significance. Therefore, the historic significance of the area should be evaluated.

The redevelopment of the Capitol Area is an important phase of Sacramento’s history, and related property types are discussed in the State Government chapter.

Significance
Redevelopment projects may be found eligible under National Register Criteria A, B, and C; California Register Criteria 1, 2, and 3; and Sacramento Register Criteria i, ii, and iii. Much of the built legacy of downtown Sacramento dates to the latter half of the twentieth century and entailed the demolition of often important buildings and entire neighborhoods in an effort to redevelop the city center. Properties eligible for listing in the National Register under Criterion A, California Register Criterion 1, or Sacramento Register Criteria i (Event) should be 50 years of age or older and will be associated with an important historical event or pattern relating to the history of World War II, redevelopment, and/or freeway-related transportation in Sacramento.

For properties to be listed under National Register Criterion B, California Register Criterion 2, or Sacramento Criterion ii (Person), redevelopment projects should be 50 years of age or older, and should be closely associated with a significant person or persons associated with the history of World War II, redevelopment, and/or freeway-related transportation in Sacramento.

For properties to be listed under National Register Criterion C, California Register Criterion 3, or Sacramento Criterion iii (Design/Construction), redevelopment projects should be at least 50 years of age and should “represent the work of a master or possess high artistic values” and may also demonstrate distinctive characteristics of a “type, period, region, or method of construction.”
Integrity
In regard to redevelopment projects, the seven aspects of integrity in order of importance should be: design, location, setting, association, workmanship, materials, and feeling; please note for local evaluations, the Sacramento Register does not address integrity of “feeling.” Because the character of mid-century redevelopment projects is often the result of a combination of aesthetic treatments, in both architecture and landscape architecture, as well as city planning principles, it is important that enough of the original building and site design, including massing, spatial relationships, and style, remain intact in order to convey how the property or properties were used and their aesthetic intent. Since redevelopment projects may have been constructed as part of a complex or as infill, it is crucial that these resources relate to both immediate and broader physical contexts, and integrity of location and setting should be retained for this reason. Since some redevelopment projects may be large-scale and may have been altered over time, integrity of materials and workmanship may be somewhat less important. Integrity of association and feeling are ranked next in importance because the project must retain enough overall integrity to express its significance within the era it was constructed. Exemplary workmanship was not necessarily as highly valued, or needed, in the post-war era where experimentation with new materials and manufacturing techniques was the priority over hand craftsmanship.

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CITY OF SACRAMENTO 6.3-121 GENERAL PLAN TECHNICAL BACKGROUND REPORT

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Burg, William. Images of Rail: Sacramento’s Streetcars. Charleston, SC: Arcadia, 2006.

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Ibid. “Sacramento: 1910,” Midtown Monthly, 1 April 2010. Accessed 10 December 2012. http://www.midtownmonthly.net/life/sacramento-1910.

Ibid. Sacramento’s K Street. Charleston, SC: The History Press, 2012.

Ibid. “Sacramento’s First Skyscraper.” Midtown Monthly, 22 April 2009. Accessed 4 January 2013. http://www.midtownmonthly.net/life/sacramento%E2%80%99s-first-skyscraper/.

Ibid. “Sacramento’s Streetcar Suburbs.” Old City Guardian, 22 August 2007. Accessed 1 April 2014. http://sacramentohistory.blogspot.com/2007/08/sacramentos-streetcar-suburbs.html.

Ibid. “The Big Tomato.” Midtown Monthly, 11 March 2011. Accessed 10 December 2012. http://www.midtownmonthly.net/life/the-big-tomato/.

Ibid. Comment posted in response to Brandon Darnell, “Restaurateurs to Fight ‘Cow Town’ Stigma,” Sacramento Press, 27 March 2012. Accessed 21 December 2012. http://www.sacramentopress.com/headline/65498/Restaurateurs_to_fight_cow_town_stigma.

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CITY OF SACRAMENTO 6.3-123 GENERAL PLAN TECHNICAL BACKGROUND REPORT

Ibid. Alkali Flat/Mansion Flats Strategic Neighborhood Action Plan, 2005. Accessed 4 January 2013. http://www.cityofsacramento.org/dsd/planning/longrange/snaps/documents/Final_SNAP_08_30_05.pdf.

Ibid. Sacramento Railyards Specific Plan, December 2007. Prepared by Design, Community & Environment,
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Ibid. Township 9 Draft Environmental Impact Report, 2007. Prepared by EIP Associates, Sacramento, CA.

Ibid. 65th Street Station Area Plan Draft Environmental Impact Report, October 2009. Prepared by PBS&J.

Ibid. River District Architectural and Historical Property Survey Update, July 2009. Prepared by Historic Environment Consultants.

Ibid. Swanston Station Transit Village Specific Plan Draft Environmental Impact Report, February 2009. Prepared by PBS&J.

Ibid. River District Specific Plan Draft Environmental Impact Report, July 2010.

Ibid. Historical Resources Survey and Evaluation Technical Report: Specific Plan for the Sacramento Center for Innovation, November 2012. Prepared by Mead & Hunt and ECORP.

City of Sacramento Economic Development Department. Docks Area Specific Plan Draft Environmental Impact Report, August 2008.

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Crawford, W.I. “The Development of the Salmon Canning Industry.” In A History of the Canning Industry, edited by Arthur I. Judge, 46-50. Baltimore, MD: The Canning Trade, 1914.

Crawford, Jeff and Jessica Herrick. “Intelligent Engineering: William Hammond Hall and the State Engineering Department.” Sacramento History Journal 4, no. 1-4 (2006).

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Ecology, Conservation, and Productive Management, edited by Richard E. Warner and Kathleen M. Hendrix, 566-77. Berkeley: University of California Press, 1984. “Eichler Home Units Are Opened To Public.” Sacramento Union, 15 May 1955. In Eichlerific:

Eichler Homes in Sacramento, 30 April 2010. Accessed 1 April 2014. http://eichlerific.blogspot.com/2010/04/1955-newspaper-article-eichler-homes.html.

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University of New Mexico Press, 2002.

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19. Gerber, James and Lei Guang. Agriculture and Rural Connections in the Pacific, 1500-1900.

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Hanak, Ellen et al. Managing California’s Water: From Conflict to Reconciliation. San Francisco:

Public Policy Institute of California, 2011.

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National Park Service. “Blue Anchor Building (California Fruit Exchange).” National Register of Historic Places Nomination Form. Prepared by Larry Mintier and Steve Rikala, 25 August 1982.

Accessed 8 January 2013. http://pdfhost.focus.nps.gov/docs/NRHP/Text/83001224.pdf.

Ibid. National Register Bulletin 15: How to Apply the National Register Criteria for Evaluation. 1997.

Ibid. “First Pacific Coast Salmon Cannery Site: Broderick, Yolo County, California.” Withdrawal of National Historic Landmark Designation, 2004.
http://www.cr.nps.gov/nhl/DOE_dedesignations/Salmon%20Cannery.htm.

Ibid. “I Street Bridge.” National Register of Historic Places Nomination Form. Prepared by John W. Snyder, 1981. Accessed 1 April 2014.
http://pdfhost.focus.nps.gov/docs/NRHP/Text/82004845.pdf.

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CITY OF SACRAMENTO 6.3-127 GENERAL PLAN TECHNICAL BACKGROUND REPORT

Ibid. “Libby McNeil and Libby Fruit and Vegetable Cannery.” National Register of Historic Places Nomination Form. Prepared by Edwin S. Astone, 2 March 1982.

Ibid. “Southern Pacific Railroad Company’s Sacramento Depot.” National Register of Historic Places Nomination Form. Prepared by James E. Henley, April 1975. Accessed 13 December 2012. http://pdfhost.focus.nps.gov/docs/NRHP/Text/75000457.pdf.

Ibid. Southern Pacific, Sacramento Shops (Central Pacific Railroad Company, Sacramento Shops). Historic American Engineering Record. Prepared by Carolyn Dougherty, 2001. HAER CA-303.

Ibid. “Tower Bridge.” National Register of Historic Places Nomination Form. Prepared by John W. Snyder, 1982. Accessed 1 April 2014.
http://pdfhost.focus.nps.gov/docs/NRHP/Text/82004845.pdf.

Navarro, Armando. Mexicano Political Experience in Occupied Aztlan: Struggles and Change.

Walnut Creek, CA: Alta Mira Press, 2005.

Northwest Land Park, LLC. “Northwest Land Park Cultural Resources Inventory and Evaluation Report.” Sacramento, CA: Prepared by PBS&J, July 2010.

Office of Historic Preservation. “CEQA & Historical Resources: Workshop Sponsored by California Preservation Foundation.” Presentation prepared by Michelle Messinger, 25 January 2007.

Ibid. “Technical Assistant Series No. 7: How to Nominate a Resource to the California Register of Historic Resources.” Sacramento, CA: California Office of State Publishing, 2001.

Orsi, Richard J. Sunset Limited: The Southern Pacific Railroad and the Development of the American West 1850-1930. Berkeley: University of California Press, 2005.

Ibid. “Railroads and the Urban Environment: Sacramento’s Story.” In River City and Valley Life:

An Environmental History of the Sacramento Region, edited by Christopher J. Castaneda and Lee M. Simpson, 77-102. Pittsburgh, PA: University of Pittsburg Press, 2013. “Out with the Old, In with the New: City College Prepares to Open renovated Auditorium by Year’s End.” Sac City Express, 29 September 2011. Accessed 1 April 2014. http://www.scc.losrios.edu/Campus_News/Modernization_of_the_Auditorium.htm.

Owens, Kenneth N. “River City: Sacramento’s Gold Rush Birth and Transfiguration.” In River City and Valley Life: An Environmental History of the Sacramento Region, edited by Christopher J. Castaneda and Lee M.A. Simpson, 31-60. Pittsburgh, PA: University of Pittsburg Press, 2013. “Pacific Railway Act.” Library of Congress, Primary Documents in American History. Accessed 23 December 2013. http://www.loc.gov/rr/program/bib/ourdocs/PacificRail.html.

Public Broadcasting System. “Sacramento, California,” September 2007. The War companion website. Accessed 4 December 2012.
http://www.pbs.org/thewar/the_witnesses_towns_sacramento.htm. “Railroads and Agriculture.” California State Railroad Museum. Accessed 10 December 2012. http://www.csrmf.org/explore-and-learn/railroad-history/california-calls-you/railroads-andagriculture.

ENVIRONMENTAL RESOURCES

GENERAL PLAN TECHNICAL BACKGROUND REPORT 6.3-128 CITY OF SACRAMENTO “The Railroad Stations of Sacramento.” California State Railroad Museum. Accessed 10 December 2012. http://www.csrmf.org/visitor-information/other-california-state-park-sattractionsin-old-sacramento/central-pacific-railroad-passenger-station/the-railroad-stations-of-sacramento. “Rails to the Pacific.” California State Railroad Museum. http://www.csrmf.org/explore-andlearn/railroad-history/the-transcontinental-railroad/rails-to-the-pacific. Accessed 4 January 2013.

Redevelopment Agency of the City of Sacramento. “Globe Mills Adaptive Reuse Project.” Draft Environmental Impact Report/Environmental Assessment. Prepared by Gail Ervin Consulting, 10 September 2004.

Relles, Marty. “Walking to the Old California State Fair,” Valley Community Newspapers, 19 May 2011. Accessed 8 January 2013. http://www.valcomnews.com/?p=4108.

Revolutionary Worker. “Sacramento Delta Blues: Chinese Workers and the Building of the California Levees, 1860-1880.” 16 February 1997. http://www.revcom.us/a/firstvol/890- 899/894/chines.htm.
“The Role of World War I Airplanes in Sacramento’s History.” KVIE, 7 June 2010. Accessed 31 December 2012. http://on.aol.com/video/the-role-of-world-war-i-airplanes-in-sacramentoshistory-300995504?icid=video_related_0.

Sacramento Housing and Redevelopment Agency. “Mather/McClellan Merged Project Area Implementation Plan.” Accessed 1 April 2014.
http://www.shra.org/Portals/0/pdf/Redevelopment_CommunityRevitalization/Plans/101.MatherMcClellan%20Merged%20Implementation%20Plan.pdf.

Sacramento Streetcar System Plan. Map. 1925. In “Sacramento Streetcar System Plan.” City of Sacramento, 2012.
“Sacramento, Cal. Rail Road Hospital, 1900.” Image record, Sacramento Room Digital.

Accessed 4 January 2012.
http://cdm15248.contentdm.oclc.org/cdm/singleitem/collection/p15248coll2/id/1192/rec/3.

Sacramento: The Commercial Metropolis of Northern and Central California. Sacramento: A.J.

Johnson & Co., 1888.

Sacramento Heritage, Inc. “Sacramento’s City Hall Area Walking Tour.” 2011. Accessed December 2013.
http://www.sacramentoheritage.org/files/Downtown_Tour_City_Hall_Area_Writeup_booklet.pdf. “Sacramento Northern Bike Trail.” Historic Bridges of the United States. Accessed 4 January 2013. http://bridgehunter.com/ca/sacramento/bh45387/.

Sacramento Fire Insurance Map. Sanborn Company, 1915.

Sacramento from the Sky: Map with Aerial View. Map. C.G. Brown, 1923. [Center for Sacramento History, 1979/X-03-00005].

Salinas, Guadalupe and Isaias D. Torres. “The Undocumented Mexican Alien: A Legal, Social, and Economic Analysis.” In Latino Employment, Labor Organizations, and Immigration, edited by Antoinette Sedillo Lopez. New York: Routledge, 1995.

CULTURAL RESOURCES: APPENDIX

CITY OF SACRAMENTO 6.3-129 GENERAL PLAN TECHNICAL BACKGROUND REPORT

Stapp, Cheryl Anne. Sacramento Chronicles: A Golden Past. Charleston, SC: History Press, 2013.

Shaw, Michael. “AKT Buys East Sac Business Park.” Sacramento Business Journal, 12 November 2006. Accessed January 4, 2012.
http://www.bizjournals.com/sacramento/stories/2006/11/13/story7.html?page=all.

Severson, Thor. Sacramento, An Illustrated History: 1839-1874, From Sutter’s Fort to Capital City. San Francisco: California Historical Society, 1973.

Simpson, Lee. Sacramento’s Oak Park. San Francisco: Arcadia Publishing, 2004.

Stanford, Leland. “Central Pacific Railroad Statement Made to the President of the United States, and Secretary of the Interior, on the Progress of the Work,” 10 October 1865. Central Pacific Railroad Photographic Museum. Accessed December 2013. http://cprr.org/Museum/Chinese.html.

Starbuck, Ron. “Sacramento Army Depot History.” California State Military Museum. Accessed 2014. http://www.militarymuseum.org/SacramentoArmyDepot.html.

State of California. “California Environmental Quality Act.” http://ceres.ca.gov/topic/env_law/ceqa/summary.html.
“Timeline.” Sacramento History Online. Accessed 10 December 2012. http://www.sacramentohistory.org/resources_timeline.html.

Tufts, Warren P. “The Rich Pattern of California Crops.” In California Agriculture edited by Claude B. Hutchinson, 113-238. Berkeley: University of California, 1946.

Twain, Mark. “Letter from Sacramento.” Territorial Enterprise, 25 February 1866. Accessed 10 December 2012. http://www.twainquotes.com/18660200gt.html.

University of California Davis. “UC Davis Sacramento Campus 2010 Long Range Development Plan.” Prepared by BMS Design Group, November 2010.

Union Pacific. “Chronological History.” Accessed 10 December 2012. http://www.up.com/aboutup/history/chronology/index.htm.

Union Pacific. “Passenger Service Transfers to Amtrak.” Union Pacific 150 Timeline. Accessed 1 April 2014. http://up150.com/timeline/amtrak.

United States Copyright Office. “Reproduction of Copyrighted Works by Educators and Librarians.” Washington, DC: The U.S. Copyright Office – Library of Congress, rev. November 2009.
“Union Station Built in Sacramento.” Electric Railways Journal 67.23. (5 June 1926).

Walton, B.F. “Fruit and Vegetables.” The Great West (1909): 18-9. Sacramento History Online.

Accessed 1 April 2014. http://www.sacramentohistory.org/admin/photo/1953_2933.pdf.

ENVIRONMENTAL RESOURCES

GENERAL PLAN TECHNICAL BACKGROUND REPORT 6.3-130 CITY OF SACRAMENTO Weinstein, Dave. “Greater Sacramento Strengs: Valley of the Atriums.” Eichler Network.

Accessed 12 September 2012. http://www.eichlernetwork.com/article/greater-sacramentostrengs-valley-atriums. “Western Pacific, the Last Transcontinental Link.” Western Pacific Online. Accessed 10 December 2012. http://www.wplives.com.

Willis, William L. History of Sacramento County California with Biographical Sketches of the Leading Men and Women of the County Who Have Been Identified with Its Growth and Development from the Early Days to Present. Los Angeles: Historic Record Company, 1913.

Wyatt Kyle K. “Significant Dates: Transcontinental Completions.” Central Pacific Railroad Photographic History Museum. Accessed 23 December 2013. http://cprr.org/Museum/Transcon_Dates.html.

Yee Fow Museum. “The Past.” Sacramento’s Chinatown Mall. Accessed December 2013. http://www.yeefow.com/past/index.html.

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APPENDIX C:

Comprehensive Environmental Response,
Compensation and Liability Information
System
Comprehensive Environmental Response, Compensation and Liability Information System

SITE / FACILITY
NAME
SITE /

FACILITY
TYPE

CLEANUP
STATUS

ADDRESS DESCRIPTION CITY
AIRGAS, INC Not NPL1 RO2 3011 ACADEMY WAY Sacramento

AUTO WRECKING

YD PROP
Not NPL NF3 AUBURN BLVD N OF EL CAMINO Sacramento

ENVIROTECH
CORP. WEMCO

DIVISION
Not NPL RO 721 NORTH B STREET Sacramento

JIBBOOM

JUNKYARD
Deleted
NPL
[Blank
Code]
240 - 260 JIBBOOM ST Sacramento
LA QUINTA INN Not NPL RO 208 JIBBOOM STREET Sacramento
LEVINE METALS Not NPL NF 1225 NORTH B STREET Sacramento

NATOMAS

AIRPORT
Not NPL OS4 3801 AIRPORT RD Sacramento

SACRAMENTO

ARMY DEPOT
Final NPL [Blank
Code]
8350 FRUITRIDGE RD Sacramento

SACRAMENTO

TRAILER FIRE
Not NPL RO 8542 ELDER CREEK ROAD Sacramento

SACRAMENTO

TRAIN TRESTLE
FIRE
Not NPL RO EXPOSITON BLVD & TRIBUTE ROAD Sacramento

SIERRA BATTERY
SALES
Not NPL OS 930 DEL PASO BLVD. Sacramento

SOUTHGATE

NORGE CLEANERS
Not NPL OS 7131 GOVERNORS CIRCLE Sacramento
UNION PACIFIC Not NPL OS 2207 7TH. AVENUE Sacramento
Source: EPA, Comprehensive Environmental Response, Compensation and Liability Information System, accessed 2019.

Notes:
1 NPL= National Priority List
2 RO= Removal Only
3 NF= No Further Action
4 OS= Other, State Lead Cleanup

California Department of Toxic Substances Control Envirostor Database

SITE / FACILITY
NAME

ENVIROSTOR
ID

SITE / FACILITY
TYPE

CLEANUP
STATUS

ADDRESS

DESCRIPTION

CITY ZIP
1031 ARDEN
WAY
60001008 VOLUNTARY

CLEANUP
REFER: RWQCB 1031 ARDEN
WAY
SACRAMENTO 95815
1500 Q STREET
SITE
34150009 HISTORICAL REFER: OTHER
AGENCY
1500 Q STREET SACRAMENTO 95814
16TH STREET

PLATING
34340050 STATE

RESPONSE
CERTIFIED 1826 16TH
STREET
SACRAMENTO 95814
2401 FLORIN
ROAD

PROPERTY
34750041 SCHOOL

INVESTIGATION

NO FURTHER
ACTION
2401 FLORIN
ROAD
SACRAMENTO 95822
24TH STREET

CHARTER
SCHOOL
60000023 SCHOOL

INVESTIGATION

INACTIVE -
NEEDS

EVALUATION
7220-7222 &
7361 24TH
STREET
SACRAMENTO 95822
723 S STREET 34990003 EVALUATION REFER: OTHER
AGENCY
723 S STREET SACRAMENTO 95814
7UP BOTTLING

FACILITY
60000509 VOLUNTARY

CLEANUP

CERTIFIED

O&M - LAND
USE

RESTRICTIONS

ONLY - LAND
USE

RESTRICTIONS
2670 LAND
AVE
SACRAMENTO 95815

A & M AUTO

WRECKERS
34590004 HISTORICAL REFER: OTHER
AGENCY
716 BELL AVE. SACRAMENTO 95838

A SCHOOL

TEST PROJECT
60000675 SCHOOL

CLEANUP
ACTIVE 1001 I STREET SACRAMENTO 95814
A-1 PAINTERS,

DECORATORS
& PAPER

HANGERS
34170036 EVALUATION REFER: OTHER
AGENCY
2816 S STREET SACRAMENTO 95816
A-1 PLATING
CO. (INACTIVE
#3)
34340093 EVALUATION INACTIVE -
NEEDS

EVALUATION
1721 16TH ST. SACRAMENTO 95814
A-1 PLATING

COMPANY
34340002 STATE

RESPONSE

CERTIFIED

O&M - LAND
USE

RESTRICTIONS

ONLY - LAND
USE

RESTRICTIONS
2170 ACOMA
ST
SACRAMENTO 95815
A-B-C

CLEANERS
34720001 HISTORICAL REFER: OTHER
AGENCY
1120 7TH
STREET
SACRAMENTO 95814

SITE / FACILITY
NAME

ENVIROSTOR
ID

SITE / FACILITY
TYPE

CLEANUP
STATUS

ADDRESS

DESCRIPTION

CITY ZIP
ALL SIGNS 34370068 HISTORICAL REFER: OTHER
AGENCY
6505 FOLSOM

BOULEVARD
SACRAMENTO 95819

ALTA PLATING
AND

CHEMICAL
CORP.
34340007 EVALUATION REFER: RWQCB 1733 S STREET SACRAMENTO 95814

AMERICAN

PLATING
WORKS
34340121 EVALUATION INACTIVE -
NEEDS

EVALUATION
2822 S STREET SACRAMENTO 95816

AMERICAN

POLY-THERM

COMPANY,
INC.
34300001 EVALUATION NO FURTHER
ACTION
1636

KATHLEEN
AVENUE
SACRAMENTO 95815
APOLLO

CLEANERS
34720005 HISTORICAL REFER: OTHER
AGENCY
1326 FULTON
AVENUE
SACRAMENTO 95825

ARDEN PLAZA

CLEANERS
34720007 HISTORICAL REFER: OTHER
AGENCY
4373 ARDEN
WAY
SACRAMENTO 95825
ARNOLD
PALMER

CLEANING
CENTER
34720008 EVALUATION REFER: RCRA 4338 ARDEN
WAY
SACRAMENTO 95825
ARON'S

BUILDING &

WRECKING
57490008 HISTORICAL INACTIVE -
NEEDS

EVALUATION
4245 & 4305

WEST CAPITOL
AVE.

WEST

SACRAMENTO
95691
ARROW

CURTAIN AND

DRAPERY

CLEANERS
34270017 HISTORICAL REFER: OTHER
AGENCY
3301 FOLSOM

BOULEVARD
SACRAMENTO 95816

ART CLEANERS
& DYERS
(INACTIVE
#309)
34720056 HISTORICAL REFER: OTHER
AGENCY
4821 J ST SACRAMENTO 95819

ART'S BODY &

PAINT SHOP
34750003 HISTORICAL REFER: OTHER
AGENCY
7049 FLORINPERKINS RDSACRAMENTO 95828
AUTO

WRECKING
YARD

PROPERTY
34170035 EVALUATION INACTIVE -
NEEDS

EVALUATION
1421 AUBURN

BOULEVARD
SACRAMENTO 95815

AMERICAN

PLATING
WORKS
71003742 TIERED PERMIT NO ACTION

REQUIRED
2822 S STREET
REAR
SACRAMENTO 95816
ANDREW
CORP.
71003424 TIERED PERMIT INACTIVE -
NEEDS

EVALUATION
8430 ROVANA
CIRCLE
SACRAMENTO 95828

SITE / FACILITY
NAME

ENVIROSTOR
ID

SITE / FACILITY
TYPE

CLEANUP
STATUS

ADDRESS

DESCRIPTION

CITY ZIP
B O R

INDUSTRIES,
INC
57420006 EVALUATION INACTIVE -
NEEDS

EVALUATION
2505 RICE
AVENUE
WEST

SACRAMENTO
95691

BIGGERS

INDUSTRIAL

GERLINGER
34340018 HISTORICAL NO FURTHER
ACTION
551 SEQUOIA

PACIFIC

BOULEVARD
SACRAMENTO 95814

BJ'S CLEANERS
#1
34270001 HISTORICAL REFER: OTHER
AGENCY
8959 FOLSOM

BOULEVARD
SACRAMENTO 95826

BJ'S CLEANERS
#2
34270028 HISTORICAL REFER: OTHER
AGENCY
3635 SOUTH

PORT DRIVE
SACRAMENTO 95826
BOB

GRAVENKAMP
AUTO

WRECKER
34500020 HISTORICAL REFER: OTHER
AGENCY
3316 47TH
AVE
SACRAMENTO 95823
BOB'S

CLEANERS
34270030 HISTORICAL REFER: OTHER
AGENCY
2675

BROADWAY
SACRAMENTO 95818

BOULEVARD
FRENCH

LAUNDRY &

CLEANERS
34720010 HISTORICAL REFER: OTHER
AGENCY
3315 FOLSOM
BLVD.

SACRAMENTO 95816

BRIDGEWAY
ISLAND

ELEMENTARY
57010004 SCHOOL

INVESTIGATION

NO FURTHER
ACTION

GOLDEN GATE

DR/HALF

MOON BAY

CIRCLE/MARSH
ALL RD
WEST

SACRAMENTO
95691

BUILDING
1407-

MCCLELLAN

AIR FORCE
BASE
34830002 SCHOOL

INVESTIGATION

NO ACTION

REQUIRED

BUILDING
1407/MCCLELL
AN AFB
SACRAMENTO 95652-
1075

BRIDGEWAY
ISLAND

ELEMENTARY
SCHOOL
60000788 SCHOOL

INVESTIGATION

NO ACTION

REQUIRED
3255 HALF

MOON BAY
CIRCLE
WEST

SACRAMENTO
95691

BRIDGEWAY

LAKES NORTH -

PHASE I B
60000426 VOLUNTARY

CLEANUP
CERTIFIED 3695

MARSHALL
ROAD
WEST

SACRAMENTO
95691
CADA

WAREHOUSE

REDEVELOPME

NT PROJECT
34390001 VOLUNTARY

CLEANUP
CERTIFIED 1108 R STREET SACRAMENTO 95814
CAE

VANGUARD,
INC.
71003566 TIERED PERMIT INACTIVE -
NEEDS

EVALUATION
4391 PELL
DRIVE #E
SACRAMENTO 95838

SITE / FACILITY
NAME

ENVIROSTOR
ID

SITE / FACILITY
TYPE

CLEANUP
STATUS

ADDRESS

DESCRIPTION

CITY ZIP

CALIFORNIA

ANALYTICAL
LABS.
34730092 HISTORICAL NO FURTHER
ACTION
401 N 16TH ST. SACRAMENTO 95814

CALIFORNIA
STATE

UNIVERSITY

SACRAMENTO
CAT080031115 HAZ WASTE -
State Only
CLOSED 6000 J ST SACRAMENTO 9.58E+0
8 CALTRANS

HEADQUARTE
RS
CAD98168556
3 HAZ WASTE NONOPERATING1120 N ST SACRAMENTO 9.58E+0
8 CALTRANS, I-5
Q STREET OFFRAMP
34240037 STATE

RESPONSE

CERTIFIED

O&M - LAND
USE

RESTRICTIONS

ONLY - LAND
USE

RESTRICTIONS
I-5 Q STREET

OFF-RAMP
SACRAMENTO 95814

CAMPBELL
SOUP

COMPANY
34200003 EVALUATION REFER: OTHER
AGENCY
6200

FRANKLIN

BOULEVARD
SACRAMENTO 95824

CAMPBELL

SOUP SUPPLY
CO
CAD00919836
7 HAZ WASTE -
RCRA
CLOSED 43RD AVE &

FRANKLIN
BLVD
SACRAMENTO 9.58E+0
8 CAMPBELL

SOUP SUPPLY
CO
80001618 CORRECTIVE
ACTION

NO FURTHER
ACTION
43RD AVE &

FRANKLIN
BLVD
SACRAMENTO 9.58E+0
8 CAPITOL CITY

TRUCK & BUS
REPAIR
57750003 HISTORICAL INACTIVE -
NEEDS

EVALUATION
4235 WEST

CAPITOL
AVENUE
WEST

SACRAMENTO
95691

CAPITOL

PLATING

CORPORATION
57340006 STATE

RESPONSE

INACTIVE -
ACTION

REQUIRED
319 3RD
STREET
WEST

SACRAMENTO
95605

CENTRAL
VALLEY

CHEMICALS
34280020 HISTORICAL REFER: OTHER
AGENCY
1908 DAVID
STREET
SACRAMENTO 95826
CHRIS

CLEANERS
(INACTIVE
#323)
34720063 HISTORICAL REFER: OTHER
AGENCY
3213

MARYSVILLE
BLVD.

SACRAMENTO 95815

CHROMALLOY/

GENERAL

RADIATOR
34370020 STATE

RESPONSE

CERTIFIED

O&M - LAND
USE

RESTRICTIONS

ONLY - LAND
7609 WILBUR
WAY
SACRAMENTO 95828

SITE / FACILITY
NAME

ENVIROSTOR
ID

SITE / FACILITY
TYPE

CLEANUP
STATUS

ADDRESS

DESCRIPTION

CITY ZIP
USE

RESTRICTIONS
CLARK

TRUCKING
57420005 EVALUATION REFER: RWQCB 2000 SOUTH

RIVER ROAD
WEST

SACRAMENTO
95691

CREEKSIDE

LEARNING
CENTER
34070017 SCHOOL

INVESTIGATION

NO FURTHER
ACTION

KOKOMO AND

NORTH PARK
DRIVE
SACRAMENTO 95834
CROWN
CLEANERS, #1
34720017 EVALUATION REFER: OTHER
AGENCY
5541 H STREET SACRAMENTO 95819

CRYSTAL

CLEANERS
34720144 HISTORICAL REFER: OTHER
AGENCY
2933 WALNUT
AVENUE
SACRAMENTO 95826
CTR. FOR AIDS
RESEARCH, ED.

AND SVCS.
34800002 CALMORTGAGE NO ACTION

REQUIRED
1500 - 21ST
STREET
SACRAMENTO 95814

CURLEY'S C
AND L

CLEANERS
34720019 HISTORICAL REFER: OTHER
AGENCY
7206

FRUITRIDGE
ROAD
SACRAMENTO 95826

CURLEY'S ELITE

CLEANERS
34270067 HISTORICAL REFER: OTHER
AGENCY
7101

FRANKLIN

BOULEVARD
SACRAMENTO 95823

CURLEYS

CLEANERS
34720145 HISTORICAL REFER: OTHER
AGENCY
7424 SUNSET
AVE
SACRAMENTO 95822

DOWNTOWN

RAILYARD

VENTURE, LLC
60002230 VOLUNTARY

CLEANUP

ACTIVE - LAND
USE

RESTRICTIONS

PORTIONS OF

THE FORMER
SPTCO

LOCOMOTIVE

WORKS (AKA

SACRAMENTO
RAILYARDS).

PORTIONS OF

LAGOON,

NORTHERN
SHOPS,

CENTRAL

CORRIDOR,

CAR SHOP

NINE AND

SACRAMENTO

STATION

STUDY AREAS
(APN: 002-
0010-049, -
052, -056, AND
-058).

SACRAMENTO 95814

SITE / FACILITY
NAME

ENVIROSTOR
ID

SITE / FACILITY
TYPE

CLEANUP
STATUS

ADDRESS

DESCRIPTION

CITY ZIP

DUFFY'S

CLEANERS

AND TAILORS
34720021 HISTORICAL REFER: OTHER
AGENCY
4643

FREEPORT
BLVD
SACRAMENTO 95818

DEL PASO

HEIGHTS ES
ORG -

PORTABLE

REPLACEMENT

BUILDING
60001467 SCHOOL

INVESTIGATION

INACTIVE -
NEEDS

EVALUATION
590 MOREY
AVENUE
SACRAMENTO 95838
EDWARD
KEMBLE

ELEMENTARY
SCHOOL
34820004 SCHOOL

INVESTIGATION

NO ACTION

REQUIRED
7495 19TH
STREET
SACRAMENTO 95822
ELECTROCOATINGS INC57350002 HISTORICAL REFER: OTHER
AGENCY
2904 DULUTH
STREET
WEST

SACRAMENTO
95691
ESS

LABORATORY
34360007 STATE

RESPONSE
CERTIFIED 9613 OATES
DR
SACRAMENTO 95827

ELKHORN

VILLAGE

ELEMENTARY
SCHOOL
60000828 SCHOOL

INVESTIGATION

NO ACTION

REQUIRED
750 CUMMINS
WAY
WEST

SACRAMENTO
95605

EQUILON

ENTERPRISES,
LLC
71002125 TIERED PERMIT INACTIVE -
NEEDS

EVALUATION
1509 S. RIVER
ROAD
WEST

SACRAMENTO
95691

FABRICARE

ONE HOUR

MARTINIZING
#1
57720001 HISTORICAL REFER: OTHER
AGENCY
2797

DELMONTE
BLVD
WEST

SACRAMENTO
95691

FABRICARE

ONE HOUR

MARTINIZING
#2
57720005 HISTORICAL REFER: OTHER
AGENCY
827

JEFFERSON

BOULEVARD
WEST

SACRAMENTO
95691

FASHION

CLEANERS
34720025 EVALUATION REFER: OTHER
AGENCY
2458 AVALON
DRIVE
SACRAMENTO 95825

FEDERAL

COURTHOUSE
-

SACRAMENTO
34750040 VOLUNTARY

CLEANUP

CERTIFIED

O&M - LAND
USE

RESTRICTIONS

ONLY - LAND
USE

RESTRICTIONS
5TH AND I

STREETS
SACRAMENTO 95814

FINKEY'S

DETROIT &
G.M. DIESEL

ENGINES
57750001 HISTORICAL REFER: RWQCB 3050 WEST
CAPITAL AVE.

WEST

SACRAMENTO
95691

SITE / FACILITY
NAME

ENVIROSTOR
ID

SITE / FACILITY
TYPE

CLEANUP
STATUS

ADDRESS

DESCRIPTION

CITY ZIP
FLORIN

CLEANERS
34720029 EVALUATION REFER: OTHER
AGENCY
6612 FLORIN
ROAD
SACRAMENTO 95828
FONTS

PROPERTY
34650001 STATE

RESPONSE
CERTIFIED 1822 16TH
STREET
SACRAMENTO 95814

FORMER CITY

LANDFILL
34490024 EVALUATION REFER: OTHER
AGENCY

NORTH OF
WEST 28TH

AND NORTH B

STREETS
SACRAMENTO 95816
FORMER
SUTTER

MEMORIAL

HOSPITAL
60002555 VOLUNTARY

CLEANUP

NO FURTHER
ACTION
5105 F STREET SACRAMENTO 95819

FRANKLIN

FIELD COUNTY

AIRPORT
34450009 EVALUATION REFER: RWQCB BRUCEVILLE
RD.

SACRAMENTO 95823
FLORIN

VINEYARD GAP
QUAD 1

ELEMENTARY
SCHOOL
60002361 SCHOOL

INVESTIGATION

NO FURTHER
ACTION
7450 ELK

GROVE-FLORIN
ROAD
SACRAMENTO 95829
FORMER

GENUINE

PARTS STORE
60001460 VOLUNTARY

CLEANUP
CERTIFIED 4914 AUBURN
BLVD.

SACRAMENTO 95841
FUTURE K-8

SITE AT

TRUXEL AND
ARENA
60002414 SCHOOL

INVESTIGATION

INACTIVE -

WITHDRAWN
3949 TRUXEL
ROAD
SACRAMENTO 95834
FUTURE

SACRED HEART
SCHOOL
60000964 VOLUNTARY

CLEANUP

NO FURTHER
ACTION
39TH STREET

AND H STREET
SACRAMENTO 95816
GERBER
DUMPSACRAMENTO

CO - SWDS
34490014 EVALUATION REFER: RWQCB GERBER &

EXCELSIOR
RDS.

SACRAMENTO 95823

GOLDEN WEST

HOMES (GPM)
34360067 STATE

RESPONSE
CERTIFIED 9998 OLD

PLACERVILLE
ROAD
SACRAMENTO 95827

GATEWAY

COMMUNITY

CHARTERS

PROPOSED

NEW CHARTER
SCHOOL
60001750 SCHOOL

INVESTIGATION

NO ACTION

REQUIRED
4525 MAY
STREET
SACRAMENTO 95838
H & H

CLEANERS
34720154 HISTORICAL REFER: OTHER
AGENCY
2504 WATT
AVE
SACRAMENTO 95821

SITE / FACILITY
NAME

ENVIROSTOR
ID

SITE / FACILITY
TYPE

CLEANUP
STATUS

ADDRESS

DESCRIPTION

CITY ZIP

H AND H

CLEANERS
57720007 HISTORICAL REFER: OTHER
AGENCY
1231 MERKLEY
AVENUE
WEST

SACRAMENTO
95691
HARRIS

AVENUE PCB
SITE
34330035 STATE

RESPONSE
CERTIFIED 627 HARRIS
AVE
SACRAMENTO 95838

HOLLAND

CLEANERS
34720156 HISTORICAL REFER: OTHER
AGENCY
7115 SOUTH

LAND PARK
DRIVE
SACRAMENTO 95831
HS/MS 10/ALT
7 70000151 SCHOOL

INVESTIGATION

INACTIVE -
NEEDS

EVALUATION
FLORIN

ROAD/BRADSH

AW ROAD
SACRAMENTO 95202

J & J ONE
HOUR

CLEANERS
34270094 HISTORICAL REFER: OTHER
AGENCY
1385 FLORIN
ROAD
SACRAMENTO 95822

JAR BUILDING -

GERLINGER

MOTOR PARTS
57370001 HISTORICAL REFER: RWQCB 3020 & 3040
DULUTH
STREET
WEST

SACRAMENTO
95691

JENSEN FLYING

SERVICES
34450022 STATE

RESPONSE
CERTIFIED 2080 BLAIR
AVENUE
SACRAMENTO 95819

JIBBOOM

BUILDING
34490056 VOLUNTARY

CLEANUP

CERTIFIED /

OPERATION &

MAINTENANCE
- LAND USE

RESTRICTIONS
240 JIBBOOM
STREET
SACRAMENTO 95814

JIBBOOM

JUNKYARD
34490023 FEDERAL

SUPERFUND -

DELISTED
CERTIFIED 240-260

JIBBOOM
STREET
SACRAMENTO 95814

JOHN BIGLER

ELEMENTARY
SITE
34000006 SCHOOL

INVESTIGATION

NO ACTION

REQUIRED
2200 JOHN

STILL DRIVE
SACRAMENTO 95832

JOHN TAYLOR

FERTILIZER
(INACTIVE
#327)
34280146 HISTORICAL NO FURTHER
ACTION
2700

ACADEMY
WAY
SACRAMENTO 95815

JOHNSON

CONTROL
34490054 STATE

RESPONSE

CERTIFIED AREA WEST OF

FRANKLIN ON
SIMMS
SACRAMENTO 95823

KAROLTON

ENVELOPE
CO./AMERICA

N PAD & PAP
80001414 CORRECTIVE
ACTION

NO ACTION

REQUIRED
2660 PORT ST WEST

SACRAMENTO

9.57E+0
8 KAROLTON

ENVELOPE
CO./AMERICA

N PAD & PAP
CAD05340908
2 HAZ WASTE PROTECTIVE
FILER
2660 PORT ST WEST

SACRAMENTO

9.57E+0
8 SITE / FACILITY
NAME

ENVIROSTOR
ID

SITE / FACILITY
TYPE

CLEANUP
STATUS

ADDRESS

DESCRIPTION

CITY ZIP
KELBRO

CORPORATION
34240027 EVALUATION REFER: OTHER
AGENCY
3560 RAMONA
AVENUE
SACRAMENTO 95826

KEN'S BUFF

AND PLATING
70000051 STATE

RESPONSE
ACTIVE 1816 21ST
STREET
SACRAMENTO 95814

L STREET SITE -
#1830
34290013 HISTORICAL REFER: RWQCB 1830 L STREET SACRAMENTO 95816

LABRIC/C & S

BATTERY AND
LEAD
60002773 EVALUATION ACTIVE 860 RISKE
LANE
WEST

SACRAMENTO
95691

LAND PARK

CLEANERS
34720039 HISTORICAL REFER: OTHER
AGENCY
5862 SOUTH

LAND PARK
DRIVE
SACRAMENTO 95822

LEIBEL'S

CLEANERS

AND TAILORS
34720040 HISTORICAL REFER: OTHER
AGENCY
10853
FOLSOM

BOULEVARD
SACRAMENTO 95827
LOWRYS ONEHOUR

CLEANING -

ARDEN FAIR
34720006 HISTORICAL REFER: OTHER
AGENCY
1633 ARDEN
WAY
SACRAMENTO 95815
LUCKY

DRAYAGE
57420003 HISTORICAL REFER: RWQCB 1520 SOUTH

RIVER ROAD
WEST

SACRAMENTO
95691

LIBERTY

ELEMENTARY

SCHOOL SITE
(YOUNG J.

PAIK FAMILY
TRUST)
60001314 SCHOOL

INVESTIGATION

NO FURTHER
ACTION

NORTH OF

DAVIS ROAD

AND EAST OF

ANTIOCH
AVENUE
WEST

SACRAMENTO
95691
LIBERTY K-8
SCHOOL
60002738 SCHOOL

INVESTIGATION

ACTIVE EAST OF
VILAGE

PARKWAY &

SOUTH OF

TAMARACK
ROAD
WEST

SACRAMENTO
95691
LOT X 60002790 VOLUNTARY

CLEANUP

ACTIVE BOUNDED BY

CAPITOL MALL,
3RD ST., N ST.,
AND I-5. (APNS
006-0135-028,
-029, AND -
030)
SACRAMENTO 95814
LUTHER

BURBANK

HIGH SCHOOL
SPORTS

COMPLEX
60001286 SCHOOL

INVESTIGATION

NO ACTION

REQUIRED
3500 FLORIN
ROAD
SACRAMENTO 95823

SITE / FACILITY
NAME

ENVIROSTOR
ID

SITE / FACILITY
TYPE

CLEANUP
STATUS

ADDRESS

DESCRIPTION

CITY ZIP

MARCONI
WATT

CLEANERS
34720041 HISTORICAL REFER: OTHER
AGENCY
3510

MARCONI
AVENUE
SACRAMENTO 95821
MASTER

CLEANERS INC
34720162 HISTORICAL REFER: OTHER
AGENCY
1506 SILICA
AVENUE
SACRAMENTO 95815

MC SUPPLY

FORWARDING
ANNEX
(J09CA7048)
80000743 MILITARY

EVALUATION

INACTIVE -
NEEDS

EVALUATION

SACRAMENTO

MCCLATCHY
WAY

PROPERTY
34880003 SCHOOL

INVESTIGATION

NO ACTION

REQUIRED
401

MCCLATCHY
WAY
SACRAMENTO 95818

MCCLELLAN

AFB OTR MK
80000011 MILITARY

EVALUATION

NO FURTHER
ACTION

SACRAMENTO

MCCLELLAN
AFB

TEMPORARY

HOUSING
80001160 MILITARY

EVALUATION

NO FURTHER
ACTION

SACRAMENTO

MCCLELLAN

AIR FORCE
BASE -
BUILDING 7
34970010 FEDERAL

SUPERFUND -
LISTED

NO FURTHER
ACTION
5200 WATT
AVENUE
SACRAMENTO 95660

MCCURRY

COMPANIES
34590018 HISTORICAL NO FURTHER
ACTION
1231 K ST SACRAMENTO 95814

MENCARINI &

JARWIN INC,
CHROME
CRAFT
34340035 HISTORICAL REFER: RWQCB 1819 23RD ST SACRAMENTO 95816

MERCURY

CLEANERS
34720044 HISTORICAL REFER: OTHER
AGENCY
1419 16TH
STREET
SACRAMENTO 95814

MERRY X-RAY

CHEMICAL

CORPORATION
CAL000100189 HAZ WASTE -
Standardized
CLOSED 1045 W

NATIONAL DR
SACRAMENTO 9.58E+0
8 METALLOY
STEEL

FOUNDRY
34340038 VOLUNTARY

CLEANUP

NO FURTHER
ACTION
8588 THYS
COURT
SACRAMENTO 95828

MIDDLE/HIGH

SCHOOL SITE
34020005 SCHOOL

INVESTIGATION

NO ACTION

REQUIRED

ELKHORN

BOULEVARD/E

AST LEVEE
ROAD
SACRAMENTO 95835
MODEL

CLEANERS
34720045 HISTORICAL REFER: OTHER
AGENCY
2780

FRUITRIDGE
RD
SACRAMENTO 95820
MR. CLEAN

CLEANERS
34720046 HISTORICAL REFER: OTHER
AGENCY
7080 24TH ST SACRAMENTO 95822

SITE / FACILITY
NAME

ENVIROSTOR
ID

SITE / FACILITY
TYPE

CLEANUP
STATUS

ADDRESS

DESCRIPTION

CITY ZIP
MAPLE TREE 60002617 CALMORTGAGE NO ACTION

REQUIRED
7599 MAPLE

TREE WAY
SACRAMENTO 95831

MATHER AIR

FORCE BASE
34970003 FEDERAL

SUPERFUND -
LISTED

ACTIVE - LAND
USE

RESTRICTIONS
5,485 ACRES;
12 MI EA OF

SACRAMENTO,
CA
SACRAMENTO 95655
MATHER

STORAGE ANX
(J09CA0081)
80000054 MILITARY

EVALUATION

NO FURTHER
ACTION

SACRAMENTO

MCCLELLAN

AIR FORCE
BASE
34970002 FEDERAL

SUPERFUND -
LISTED

ACTIVE - LAND
USE

RESTRICTIONS
APPROX 5200

WATT AVE
SACRAMENTO 95652

MCCLELLAN

PARK MOA
80001195 FEDERAL

SUPERFUND -
LISTED

ACTIVE - LAND
USE

RESTRICTIONS

CORNER OF

BELL AVE AND
PARKER
STREET
SACRAMENTO 95652

MCCLELLAN

SRC AUX
(J09CA0161)
80000108 MILITARY

EVALUATION

NO FURTHER
ACTION

SACRAMENTO
MERCY

HOUSING

CALIFORNIA
70000126 VOLUNTARY

CLEANUP
CERTIFIED 3421 EAST

COUNTRY

CLUB LANE
SACRAMENTO 95691

MIXED USE

TOWER AND

CITY PARKING
60002233 VOLUNTARY

CLEANUP

ACTIVE SE CORNER OF
5TH AND J

STREETS
SACRAMENTO 95814

NATOMAS

AIRPORT
34450010 VOLUNTARY

CLEANUP
REFER: EPA 3801 AIRPORT
ROAD
SACRAMENTO 95834

NATOMAS
MIDDLE
SCHOOL
34010009 SCHOOL

INVESTIGATION

NO FURTHER
ACTION
3710 DEL
PASO

BOULEVARD
SACRAMENTO 95834
NEW K-12

CHARTER
SCHOOL
34880002 SCHOOL

INVESTIGATION

NO ACTION

REQUIRED
BELL AVENUE SACRAMENTO 95838
NIROP

SACRAMENTO
(J09CA1062)
80000659 MILITARY

EVALUATION

NO FURTHER
ACTION

SACRAMENTO
NORGE

CLEANING

VILLAGE
(SOUTHGATE)
34720048 EVALUATION REFER: RWQCB 7131

GOVERNORS
CIRCLE
SACRAMENTO 95823
NORGE

VILLAGE

CLEANERS
34720047 HISTORICAL REFER: OTHER
AGENCY
2707 EL
CAMINO
AVENUE
SACRAMENTO 95821
NORTH

HIGHLANDS
34480006 STATE

RESPONSE

NO FURTHER
ACTION
8 ACRES;6 MI

NORTHEAST
SACRAMENTO 95660

SITE / FACILITY
NAME

ENVIROSTOR
ID

SITE / FACILITY
TYPE

CLEANUP
STATUS

ADDRESS

DESCRIPTION

CITY ZIP

AIR NATIONAL
GUARD
OF

SACRAMENTO,
CA

NORTHBOROU
GH

ELEMENTARY
SCHOOL
34010020 SCHOOL

INVESTIGATION

NO ACTION

REQUIRED

BANFIELD

DRIVE/MINDE
N WAY
SACRAMENTO 95834

NORTHBOROU
GH II

ELEMENTARY
SCHOOL
34010024 SCHOOL

INVESTIGATION

NO FURTHER
ACTION

MAYBROOK

DRIVE/MABRY
DRIVE
SACRAMENTO 95835

NORTHPOINTE
MIDDLE
SCHOOL
34010008 SCHOOL

INVESTIGATION

NO FURTHER
ACTION

CLUB CENTER

DRIVE/DANBR

OOK ROAD
SACRAMENTO 95835

NORWOOD

JUNIOR HIGH
34970009 SCHOOL

INVESTIGATION

NO ACTION

REQUIRED

NORWOOD

AVENUE/MAIN
AVENUE
SACRAMENTO 95838

NATOMAS

CROSSING
34010018 SCHOOL

INVESTIGATION

NO FURTHER
ACTION

ENDEAVOR

WAY/AIRPORT
ROAD
SACRAMENTO 95834
NORTH 12TH

STREET SOCIAL

SERVICES SITE
60001172 EVALUATION INACTIVE -
ACTION

REQUIRED
1221 N A ST.,
1223 N A
ST.,111 N 12TH
ST. AND A ST.

SACRAMENTO 95811

NORTH B
STREET

PROPERTIES
60002696 VOLUNTARY

CLEANUP
ACTIVE 458 / 464 /
468 NORTH B
STREET
SACRAMENTO 95811

ONE HOUR

MARTINIZING
34720049 HISTORICAL REFER: OTHER
AGENCY
1000

ALHAMBRA

BOULEVARD
SACRAMENTO 95816

ORCHARD
SUPPLY

COMPANY
34280048 STATE

RESPONSE

CERTIFIED

O&M - LAND
USE

RESTRICTIONS

ONLY - LAND
USE

RESTRICTIONS
1731 17TH
STREET
SACRAMENTO 95814

OLD BRYTE

LANDFILL
60001146 VOLUNTARY

CLEANUP
ACTIVE 50035 COUNTY
ROAD 126
WEST

SACRAMENTO
95691

ORCHARD
SUPPLY

COMPANY/WO

RLD OF GOOD
TASTE
70000025 VOLUNTARY

CLEANUP

NO FURTHER
ACTION

THE BUILDING
AT THE

ORCHARD
SUPPLY

COMPANY
SACRAMENTO 95814

SITE / FACILITY
NAME

ENVIROSTOR
ID

SITE / FACILITY
TYPE

CLEANUP
STATUS

ADDRESS

DESCRIPTION

CITY ZIP
SITE, 1731
17TH STREET

PACIFIC COAST

CHEMICAL

COMPANY
34510057 HISTORICAL REFER: OTHER
AGENCY
8120 37TH
AVENUE
SACRAMENTO 95824

PAL-PEN

CHEMICAL

CORPORATION
34280051 HISTORICAL REFER: OTHER
AGENCY
2010 TRIMBLE
WAY
SACRAMENTO 95825

PALM IRON

AND BRIDGE
WORKS
34340040 HISTORICAL INACTIVE -
NEEDS

EVALUATION
8845 ELDER

CREEK ROAD
SACRAMENTO 95828

PALM IRON
WORKS
34340119 STATE

RESPONSE
CERTIFIED 1515 S STREET SACRAMENTO 95814

PAYLESS
CLEANERS (2)
57720002 HISTORICAL REFER: OTHER
AGENCY
1351 MERKLEY
AVENUE
WEST

SACRAMENTO
95691
PETROCHECK 34950001 HISTORICAL REFER: OTHER
AGENCY
2076 ACOMA
STREET
SACRAMENTO 95815

PETROLEUM

TANK LINES
57420001 EVALUATION REFER: RWQCB 2600 RICE
AVENUE
WEST

SACRAMENTO
95691
PG&E -

SACRAMENTO
SITE
34490048 STATE

RESPONSE

ACTIVE - LAND
USE

RESTRICTIONS
2000 FRONT
STREET
SACRAMENTO 95818
PG&E

MANUFACTUR

ED GAS PLANT
SV-SA-SAC-3
34490050 EVALUATION INACTIVE -
NEEDS

EVALUATION

SOUTH OF

WESTERN END
OF

BROADWAY
SACRAMENTO 95801
PHOEBE
HEARST

ELEMENTARY
SCHOOL
60000037 SCHOOL

INVESTIGATION
REFER: LOCAL
AGENCY
1410 60TH
STREET
SACRAMENTO 95819
PINE

MOUNTAIN

CORPORATION
34240035 EVALUATION REFER: OTHER
AGENCY
6001 POWER

INN ROAD
SACRAMENTO 95824

PITTSBURG

DES MOINES
STEEL
34340117 STATE

RESPONSE
REFER: OTHER
AGENCY
9605

BUTTERFIELD
SACRAMENTO 95827

PRECISION

PLATING AND

GRINDING
34330009 HISTORICAL REFER: OTHER
AGENCY
3030 POWER

INN ROAD
SACRAMENTO 95826

PRESTIGE

CLEANERS

AND LAUNDRY
34720070 HISTORICAL REFER: OTHER
AGENCY
4765 J ST SACRAMENTO 95819

PROCTER &
GAMBLE
CAD00918945
7 HAZ WASTE PROTECTIVE
FILER
8201

FRUITRIDGE
RD
SACRAMENTO 9.58E+0
8 SITE / FACILITY
NAME

ENVIROSTOR
ID

SITE / FACILITY
TYPE

CLEANUP
STATUS

ADDRESS

DESCRIPTION

CITY ZIP

MANUFACTURI
NG CO

PROCTER &
GAMBLE MFG.

CO.
34280055 EVALUATION REFER: OTHER
AGENCY

POWER INN &

FRUITRIDGE
ROADS
SACRAMENTO 95813
PELL DRIVE 60001003 VOLUNTARY

CLEANUP

INACTIVE -
NEEDS

EVALUATION
4220 PELL
DRIVE
SACRAMENTO 95838

PRICE CLUB
#108
71003268 TIERED PERMIT INACTIVE -
NEEDS

EVALUATION
6930 65TH
STREET
SACRAMENTO 95823

PROGRESSIVE

CIRCUIT

PRODUCTS
71003118 TIERED PERMIT INACTIVE -
NEEDS

EVALUATION
4361 PELL
DRIVE
SACRAMENTO 95838

PROPOSED

RAILYARDS

HOSPITAL
60002580 VOLUNTARY

CLEANUP
ACTIVE LOTS 2, 3, 5,
AND 6 AT THE

NW PORTION
OF THE

RAILYARDS
SACRAMENTO 95814

PROPOSED

SOJOURNER

TRUTH HIGH
SCHOOL
60000495 SCHOOL

INVESTIGATION

NO FURTHER
ACTION
7360 GLORIA
DRIVE
SACRAMENTO 95831

PROPOSED

TERRACE PARK

ELEMENTARY
SCHOOL
60000655 SCHOOL

INVESTIGATION

NO FURTHER
ACTION

GREG THATCH

CIRCLE AND

TRES PIEZAS
WAY
SACRAMENTO 95835

PROPOSED

VINEYARD
POINTE

ELEMENTARY
SCHOOL
60001844 SCHOOL

INVESTIGATION

NO ACTION

REQUIRED

NW CORNER

OF HANFIELD
DR. &

DIAMOND
RANCH RD.

SACRAMENTO 95829
QUALEX, INC. -

SACRAMENTO
71003352 TIERED PERMIT INACTIVE -
NEEDS

EVALUATION
125 MAIN
AVENUE
SACRAMENTO 95838
RAMOS

ENVIRONMEN

TAL SERVICE
57290001 EVALUATION REFER: OTHER
AGENCY
1515 SOUTH
RIVER RD.

WEST

SACRAMENTO
95691
RAMOS

ENVIRONMEN

TAL SERVICES
CAD04400355
6 INSPECTION OUT OF

COMPLIANCE
1515 S RIVER
RD
WEST

SACRAMENTO
95691
RAMOS

ENVIRONMEN

TAL SERVICES
CAD04400355
6 HAZ WASTE -
Standardized

OPERATING
PERMIT
1515 S RIVER
RD
WEST

SACRAMENTO

9.57E+0
8 SITE / FACILITY
NAME

ENVIROSTOR
ID

SITE / FACILITY
TYPE

CLEANUP
STATUS

ADDRESS

DESCRIPTION

CITY ZIP

RED FEATHER

CLEANERS
(INACTIVE
#238)
34720060 HISTORICAL REFER: OTHER
AGENCY
2500 J ST. SACRAMENTO 95816

REFINERIES

SERVICES
CAL000051079 HAZ WASTE -
Standardized
CLOSED 8280 14TH
AVE
SACRAMENTO 9.58E+0
8 REGENCY PARK
SCHOOL
34000007 SCHOOL

INVESTIGATION

NO FURTHER
ACTION
5901

BRIDGECROSS
DRIVE
SACRAMENTO 95835
RICE

GROWERS

ASSOCIATION
57200005 HISTORICAL NO FURTHER
ACTION
901 SOUTH

RIVER ROAD
WEST

SACRAMENTO
95691

RICHFIELD OIL

CO (INACTIVE
#250)
34510072 HISTORICAL REFER: OTHER
AGENCY

RIVERSIDE
BLVD. &

SUTTERVILLE
RD
SACRAMENTO 95818

RIVER CITY

HIGH SCHOOL
57820002 SCHOOL

INVESTIGATION

NO ACTION

REQUIRED
1100

CLARENDON
STREET
WEST

SACRAMENTO
95691
RIVER

TERRACE

CLEANERS
34720126 HISTORICAL REFER: OTHER
AGENCY
2735

RIVERSIDE
BLVD
SACRAMENTO 95818

RIVERPOINT

BUSINESS
PARK
57990002 EVALUATION REFER: RWQCB BETWN I-80,

REED AVE,
HARBOR BLVD.

WEST

SACRAMENTO
95691

ROSEMONT

HIGH SCHOOL
34010010 SCHOOL

INVESTIGATION

NO FURTHER
ACTION
KIEFER

BOULEVARD/B

RADSHAW
AVENUE
SACRAMENTO 95827

ROUTIER

ROAD SITE
60000120 SCHOOL