City of Sacramento
City Council - 2PM Report
915 I Street Sacramento, CA 95814
www.cityofsacramento.org
File ID: 2025-00892 9/16/2025
Sutter’s Landing Regional Park Site Amenities Plan Update File ID: 2025-00892
Location: District 4
Recommendation: Adopt a Resolution: 1) approving the environmental review for Sutter’s Landing Regional Park Site Amenities Plan Update as a Subsequent Project under the Master Environmental Impact Report for the 2040 General Plan; and 2) approving the Updated Sutter’s Landing Regional Park Site Amenities Plan.
Contact: Dana Repan, Senior Planner, (916) 808-2762, [email protected]; Jason Wiesemann, Park Planning and Development Services Manager, (916) 808-7634, [email protected]; Department of Youth, Parks, and Community Enrichment Presenter: None
Attachments:
1-Description/Analysis
2-Vicinity Map
3-Site Amenities Plan
4-Community Engagement Summary
5-Resolution Approving the Environmental Document and Site Amenities Plan 6-Comment Letter on Initial Study
Description/Analysis
Background: Sutter’s Landing Regional Park is located at the site of the City of Sacramento’s oldest landfills. The earliest landfill operations started here in the 1800s after the city excavated soil for flood control. Landfill operations continued to grow at the site, encompassing multiple areas within the site’s boundary that have operated as a disposal or landfill site up until the early 2020s. The Department of Public Works, Recycling and Solid Waste Division manages the post closure land use action plan and operational activities at the site on a daily basis.
The first document to identify the landfill as the site of a future regional park was the City’s1984 Master Plan for Park Facilities and Recreational Services. The park was first designated as Riverfront Park; subsequently, the City Council changed the name to Sutter’s Landing Park in December 1989.
File ID: 2025-00892 9/16/2025
In November 1995, the City Council changed the zoning designation for the landfill and adopted a Preliminary Master Plan for Sutter’s Landing Park. The 1995 site plan identified areas for open space and grassland, vista points, multiple sports courts such as tennis, fitness, and basketball courts, a children’s play area, an interpretive center, car-top boat launch access point at the American River, parking lots, restrooms, and a park operations area. The site’s first Feasibility Study was approved with the plan. In 2003, the City Council, with input from the Lower American River Task Force, and the Citizens Advisory Committee for Parks and Recreation, approved an update to the site plan, with the goal of creating a “Recreation Campus.” This update added more recreation amenities added to the 1995 site plan: a skate park, a dog park, additional passive recreation, a concession/restroom and recreation station, shade structures, container trees and shrubs, future natural areas on “the mound” with recreation facilities, and a mitigation area called the “triangle” on the east side of the railroad tracks. Existing site improvements include: a city corporation yard, skate park within the Baler Building, basketball courts, bocce courts, dog park, picnic tables, trails, covered stage, parking areas, and interpretive signage. In addition to recreation uses, there are industrial uses and landfill maintenance operations that utilize the access road on 28th Street and the unimproved A Street.
Issue Detail: The Department of Youth, Parks, & Community Enrichment (YPCE) recommends City Council approval of the updated Sutter’s Landing Regional Park Site Amenities Plan. With the additional 38 acres, the park has grown to 204 acres. It is a multi-use regional park located in the Central City Community Plan Area between the Central Pacific Railroad right of way to the west, I-80 to the east, Union Pacific Railroad right of way to the south, and the American River Parkway to the north, with access from McKinley Village Way and 28th Street from the south (See Attachment 2 - Vicinity Map).
In 2021, the park site expanded its footprint by 38 acres with recent property additions including: 1) the acquisition of property from California Almond Growers Exchange utilizing Proposition 68 Grant Agreement Funds which increased the acreage by 19± acres and requires the City to utilize the Property as public recreation and open space; 2) a Master Parcel Agreement with Sacramento Municipal Utility District (SMUD) to transfer ownership of the North City parcels, covering 15± acres, with a reserved transmission easement for City to utilize the easement as public recreation and open space; and, 3) the closure of two adjacent landfills on 4 acres called "Cannon and Scollan.” In 2022, YPCE received a grant for $3 million for various park improvements which helped to fund the design and construction of amenities from the 1995 and 2003 Site Plans including a concession building, habitat enhancement features, a mural on the 28th Street Skate Park with facility updates, a parking lot gate to control vehicular access, and the update Site Amenities Plan. The goal of the update is to build upon the previous two Site Plans, identify the new acreage on the site plan, document the use of the newly acquired properties consistent with the agreements and landfill closure requirements, and to incorporate any new amenities within the overall park footprint not previously identified in the 2003 Site Plan.
File ID: 2025-00892 9/16/2025
Throughout the update process, YPCE has coordinated with the Department of Public Works, Recycling and Solid Waste Division to understand the landfill regulations and requirements. YPCE wanted to understand the impact of the planning, design, and construction of any new park improvements or use designations they would have on the operations of the landfill. The objective for any park improvements is to not impede, restrict, or otherwise affect the Department of Public Works or any authorized agency or contractor to access, maintain, operate, or implement necessary actions on any of the properties. The priority of the site is to maintain the needs of the landfill operations in order to comply with all applicable federal, state, and local requirements, including but not limited to landfill closure and post-closure maintenance, environmental monitoring, and water and air quality standards. Any park improvements or maintenance activities necessary to support public safety, recreational access, trail connectivity, or other public infrastructure needs, provided such activities are consistent with applicable federal, state, and local regulations, are still allowed; however, they are secondary to the landfill operations. YPCE also needed to take into consideration the agreements and land use restrictions that are in place that take precedence on what can be planned for on the park site.
YPCE engaged extensively with the community (See Attachment 4 for summary of community engagement). Through a regional community survey, two community meetings, social media posts, and email communication, the feedback we received was that a majority of park users wanted to experience a multi-use recreational park, to expand upon what the park was currently offering. They wanted flexibility of options for sports fields and courts, passive recreation, nature appreciation and opportunities for habitat improvement. The park is considered a gem in the middle of the City and they wanted to infuse the park with more energy and opportunity for changing needs.
Objectives were developed to steer the update: to infuse the space with life and energy; reuse of existing structures and features; accessibility to ensure all members of the community can enjoy the park for recreational and educational opportunities; restoration of natural habitats; and preservation of significant historical and cultural elements. To meet these objectives 3 opportunity areas were identified to protect and enhance existing open space acreage and natural areas transitioning into the core area of the park for more active recreation. The main opportunity areas for open space/natural areas were on the “Mound,” which is a closed landfill area called the WMU A&B parcels, and the western parcels, called the “Preserve,” with agreements limiting the use to maintenance activities, recreation and open space, and the “Landfill,” with existing recreation uses which can be further enhanced with more flexible active recreation amenities and areas for art and cultural interactive displays. The Site Amenities Plan identifies examples of the types of amenities that can be located in these 3 opportunity areas (Attachment 3).
The Sutter’s Landing Regional Park Site Amenities Plan update presents a comprehensive plan for the revitalization of Sutter’s Landing Regional Park as a significant public space located in Sacramento’s urban core. By carefully considering the park’s rich history, unique challenges, and community aspirations, the site plan sets a vision for transforming an urban park into a vibrant,
File ID: 2025-00892 9/16/2025
community-centered recreation destination.
Policy Considerations: Providing parks and recreation facilities is consistent with the City’s strategic plan to achieve sustainability and livability and to expand economic development throughout the City.
The adoption of an updated site amenities plan is consistent with the park development process and the Multi-Use Regional Park classification set forth in the Sacramento Parks Plan 2040 Appendix E, and Policies 2.1 - Provide a variety of recreation facilities to meet the diverse needs of the community, including residents and visitors, all ages and abilities, and diverse interests; 2.14 - Diversify play, sports, and outdoor recreation facilities in parks as per park design guidelines and level of service standards; 2.15 - Provide innovative play opportunities for all ages and abilities; 2.17- Provide interpretive and nature-based facilities to enhance connections to nature-based recreation, history, art and culture. 2040 General Plan YPRO-1.18 - Integrated Parks and Recreation System.
The City shall continue to provide an integrated system of parks, open space areas, and recreational facilities that are safe, connect diverse communities, acknowledge neighborhood context, protect and provide access to nature, integrate with adjacent developments, and make efficient use of land and open space.
Economic Impacts: Not applicable.
Environmental Considerations: The Sutter’s Landing Regional Park Site Amenities Plan Update is consistent with the Parks Plan 2040, the 2040 General Plan and Master Environmental Impact Report (EIR). An initial study was completed, and the Environmental Planning Services Manager has determined that the plan would not result in any new significant effects not identified and evaluated in the 2040 Master EIR. A notice to this effect was provided for public review as required by the CEQA Guidelines and posted for 30 days. One comment letter was received from Corey Brown dated August 25, 2025. The comment expressed overall support of the project and recommend referencing volunteer observations of wildlife in areas of the park outside of the expanded 38 acres. The additional information would not change the analysis or conclusions of the initial study as a Subsequent Project under the Master Environmental Impact Report. The comment letter is attached (Attachment 6).
Sustainability: The Sutter’s Landing Regional Park Site Plan Update incorporates the Parks Plan 2040 policy guidelines that ensure new park development and existing park improvements address the principle of Sustainability. Specifically, to incorporate sustainable landscaping and facilities that limit water usage and energy consumption, such as drought tolerant landscaping and low impact development.
Sacramento Parks Plan 2040 Appendix E and Policy 1.9 - Implement the Parks Plan Development and Renovation Guidelines to ensure new park development and existing park improvements address the following principles: Resilience: Design, develop, and landscape parks to adapt to climate change impacts, including increasing heat, extreme weather, floods, wildfires,
File ID: 2025-00892 9/16/2025
droughts, etc. Sustainability: Incorporate sustainable landscaping and facilities that limit water usage and energy consumption, such as drought-resistant landscaping and low impact development.
Commission/Committee Action: The Sutter’s Landing Regional Park Site Amenities Plan Update was reviewed by the Parks and Community Enrichment Commission (PCEC) on March 6, 2025.
PCEC recommends City Council to approve the updated site plan for the Sutter's Landing Regional Park and to consider designating the mound and the western parcels as “wildlife areas”. However, a “wildlife area” designation is not defined within the City’s 2040 General Plan nor within the Parks Plan 2040.
The Sutter’s Landing Regional Park is classified as a Multi-use Regional Park, which can provide greenspace, natural areas, and a mix of specialized recreation and cultural facilities such as recreation and aquatic centers, beaches, marinas, museums, multi-field sports complexes, destination play areas, amphitheaters, and event space. Staff recommends the site plan identify the areas of the Mound and the Preserve as “Open Space/Natural Area”, as this is consistent with the intent of the PCEC’s recommended designation; the Parks Plan 2040’s definition of Open Space, two agreements between the Wildlife Conservation Board to retain the property for public recreation and open space, and with SMUD for recreation and open space; Sacramento’s zoning designations for the park; 2040 General Plan definition of Open Space uses as: “Natural areas that are set aside for one or several of the following reasons: for preservation of natural resources (e.g., vegetation communities, fish, wildlife, and associated habitats); for conservation of the managed production of resources (e.g., agriculture lands, rangelands, woodlands, aggregate deposits); for outdoor recreation; for public health and safety (e.g., water quality basins, flood easements, river levees); for public services (e.g., utility easements, community gardens); for urban form/ scenic resources (e.g., community separation/gateways, greenways/highway corridors, and urban reserves).” The designation of the Mound and the Preserve as Open Space/Natural Area furthers the Parks Plan 2040 Key Direction #6: Foster Nature and Trail Connections. By designating the two sections of the park as a Open Space/Natural Area, separate from undeveloped and developed parkland, it offers opportunities for nature appreciation and study, environmental education, and land stewardship. The designation also allows the City to seek funding sources for these opportunities. This designation shall not limit the operations of the landfill to continue to operate under the various closure plans.
The Sutter’s Landing Regional Park Site Amenities Plan Update was presented for information to the Sacramento County Recreation and Park District’s Recreation and Park Commission and the Lower American River Parkway Advisory Committee in April and May 2025.
Rationale for Recommendation: The Sutter’s Landing Regional Park Site Amenities Plan Update is consistent with the Parks Plan 2040 for growth and planning in a sustainable manner.
Upon approval of the Site Amenities Plan, an accompanying staff Guidebook will identify the site’s
File ID: 2025-00892 9/16/2025
complexities and opportunities, including its proximity to the American River and the feasibility of developing the park on closed landfills. Due to the complexity of the existing site, the Guidebook will be a tool used by staff to help deliver future constructions projects within Sutter’s Landing Regional Park. YPCE staff recommend the approval of the Sutter’s Landing Regional Park Site Amenities Plan Update.
Financial Considerations: There are no financial considerations associated with this report as this park will be constructed in future phases as funding is available.
Local Business Enterprise (LBE): Not applicable.
Attachment 2 - Vicinity Map
/ N a t u r a l A r e a
Attachment 4 – Community Engagement Summary
The development of the Sutter's Landing Regional Park Site Plan Update and Guidebook included public engagement, community outreach, and the involvement of advisory and park user feedback. The first outreach conducted was the Sutter's Landing Park Site Plan Kick-Off Meeting, held on September 14, 2023, outlined the scope of the project and provided a careholder list. This was followed by an internal advisory meeting with a working group of staff from different City departments, held on Thursday, November 9, 2023. Staff in attendance were from the Department of Utilities, Public Works, YPCE, Community Development Department, and Convention and Cultural Services. This meeting helped to inform and advise on the feasibility of the project, to discuss resources available, contacts, and potential considerations for the update.
The first Sutter's Landing Regional Park Site Plan Update and Guidebook Open House was held on Tuesday, January 30, 2024, at Clunie Community Center. Approximately 50 participants attended the event which included internal and external park partners and users from the Sacramento community. Input from this meeting helped to inform the development of the Sutter's Landing Park Survey, which was released for public comment from June 10th to July 12th, 2024.
Outreach for the Sutter’s Landing Park survey included:
• A Spanish/English flyer with link to survey and QR code to access the survey • A project specific email listserv of park users and interested community members to receive communication regarding update status, including a link to the online survey
• Promotional language for advertisement on City social media accounts and the Sutter’s Landing Regional Park website
• 20 “yard” signs with QR codes for posting notifications at over 20 City parks • Interdepartmental meetings and notices with several city departments for survey notification and release.
• Meeting resources and survey results are found on the park’s website:
(https://www.cityofsacramento.gov/ypce/parks/park-directory/s-t/sutters-landing- regional-park)
The Sutter’s Landing Park survey received over 800 responses and helped draft the concept site plan. The results were posted and shared with members of the community and on Sutter’s Landing Regional Park webpage.
A second meeting with the internal advisory working group was held on Thursday, August 29, 2024. This meeting reviewed the survey results and received feedback for the concept plan.
A second Community Open House event was held on Thursday, December 12, 2024, at Clunie Community Center. Outreach for the event was similar to the outreach used for the survey. Approximately 94 participants attended the event which was held for members of the community to provide comments on the draft concept for Sutter's Landing Site Plan and validate project vision for future improvements. Updated concepts for the Site Plan were shared, along with updates on adjacent Two Rivers Trail Phase 3 and ADA River Access Trail projects. Attendees provided valuable comments on the community-driven design for Sutter's Landing Site Plan and helped validate the project vision for future improvements. With the guidance and advice from department leadership during plan development at critical touchpoints, the feedback helped inform the development of the proposed Site Plan Update.
RESOLUTION NO.________
Adopted by the Sacramento City Council
APPROVING THE ENVIRONMENTAL REVIEW FOR
SUTTER’S LANDING REGIONAL PARK AMENITIES SITE
PLAN UPDATE AS A SUBSEQUENT PROJECT UNDER
THE MASTER EIR FOR THE 2040 GENERAL PLAN AND
APPROVING THE UPDATED SUTTER’S LANDING
REGIONAL PARK
SITE AMENITIES PLAN
BACKGROUND:
A. The City desires to adopt the Sutter’s Landing Regional Park Updated Site Plan. The updated Site Plan will replace the 2003 Sutter’s Landing Regional Park Master Plan.
B. The Sutter’s Landing Regional Park Site Plan Update is a subsequent project under the City’s 2040 General Plan and Master Environmental Impact Report and was developed in conjunction with the 2040 General Plan Update.
C. On March 6, 2025, the Parks and Community Enrichment Commission conducted a noticed public meeting and passed a motion recommending that the City Council adopt the
Updated Sutter’s Landing Regional Park Site Amenities
Plan.
D. On September 16, 2025, the City Council conducted a
noticed public hearing concerning the Sutter’s Landing
Regional Park Updated Site Plan.
BASED ON THE FACTS SET FORTH IN THE BACKGROUND, THE
CITY COUNCIL RESOLVES AS FOLLOWS:
Section 1. The above recitals are true and correct.
Section 2. The City Council finds that the Master Environmental Impact Report for the 2040 General Plan was certified on February 27, 2024, and the 2040 General Plan were adopted on that date.
Section 3. The City of Sacramento was the Lead Agency for the Master EIR.
Section 4. An initial study was prepared for the Sutter’s Landing Regional Park Site Amenities Plan Update project, and concluded that the project was described in the Master EIR. Based on the initial study, the City finds that the project will not cause any additional significant environmental effects that were not examined in the Master EIR, no new additional mitigation measures or Alternatives are required, and the project is within the scope of the Master EIR.
Section 5. The City has incorporated all feasible mitigation measures or feasible alternatives appropriate to the project as set forth in the Master EIR.
Section 6. Notice of the conclusion that the project is a subsequent project under the Master EIR was provided in the manner required by CEQA Guidelines section 15177(d) and 15087. The Notice of Subsequent Project (Exhibit A) was posted in the office of the County Clerk/Recorder and published in a newspaper of general circulation on July 25, 2025. The Notice established a thirty-day comment period, beginning on July 25, 2025, and ending on August 25, 2025.
Section 7. The City Council has considered all of the evidence submitted into the administrative record, including but not limited to the Master EIR and related staff reports and resolutions, as well as the Initial Study for this subsequent project, staff reports, and any public comments.
Section 8. Based on the evidence contained in the administrative record, the City Council finds as follows:
(a) Preparation of the updated Sutter’s Landing Regional Park Site Plan included outreach to provide for the involvement and input of local residents, businesses, other public agencies, the California Native American Heritage Commission tribes, civic, educational, and other community groups. The public review draft of the draft Site Plan was referred out for comment and all comments received were considered.
(b) The Sutter’s Landing Regional Park Updated Site Plan is a planning document consistent with the 2040 General Plan and a Subsequent Project under the Master Environmental Impact Report (MEIR).
(c) The Sutter’s Landing Regional Park Updated Site Plan is hereby approved and will replace the 2003 Sutter’s Landing Regional Park Master Plan as the planning document for the development of the park.
Section 9. The City Council directs the Interim City Manager or designee to file a notice of determination with the County Clerk of Sacramento County and the State Office of Planning and
Research, pursuant to the provisions of CEQA section 21152.
Section 10. Pursuant to Guidelines section 15091(e), the documents and other materials that constitute the record of proceedings upon which the City Council has based its decision are located in and may be obtained from, the Office of the City Clerk at 915 I Street, Sacramento, California. The City Clerk is the custodian of records for all matters before the City Council.
Exhibit A: Notice of Subsequent Project
Corey Ian Brown
Attorney-at-Law
510 21
st
Street
Sacramento, CA 95811
(916) 947-7109 – [email protected]
August 25, 2025
Charlie Tschudin, Senior Planner
City of Sacramento Community Development Department
Via Email: [email protected]
RE: Comments regarding Sutter’s Landing Site Amenities Plan Update Dear Charlie:
Thank you for this opportunity to comment on the Sutter’s Landing Regional Park Site Amenities Plan Update and the related General Plan Master EIR Initial Study Checklist.
I support the proposed updated site plan with the addition of the designation of the Mound, the West Sutter’s Landing Park (former Blue Diamond and SMUD parcels), and Triangle properties as “Open Space/Natural Areas.” I understand this designation will be included in the staff recommendations to the City Council.
The updated Site Plan is a substantial improvement to the City’s vision for SLP and articulates a coherent pathway for current and future generations of visitors to enjoy this incredible park. The plan appropriately protects and envisions eventual public access to key wildlife areas, provides opportunities for restoration, and locates more active recreational facilities in less environmentally sensitive locations. The check list document provides significant helpful discussions informing decision makers and the public about SLP’s various natural resources, constraints, and ways that potential implementation impacts may be mitigated. Importantly, the document recognizes that site-specific review and assessment will be required for implementation of specific projects.
I would like to recommend some revisions to the SLP Site Amenities Plan Update and the related Check List:
Suggest adding the following:
o After “American River,”, insert: “which is a designated federal and state wild and scenic river, the American River Parkway,”
o After “New Era Park,” insert “Boulevard Park and other Midtown” Pages 13-14:
Thank you for labeling the West SLP and Triangle properties as “The Preserve.” Since the City staff recommendation will include designating the Mound as an “Open Space/Natural Area,” you may want to also consider including the Mound as part of the Preserve.
Pages 29 and Subsequent Pages:
The discussion regarding wildlife species should be expanded to mention both additional protected and other species that depend on SLP habitat which is very biologically productive. Both the threatened Swainson’s hawk and the fully-protected White-tailed kite are confirmed to use the Mound and potentially other parts of SLP as habitat. The Mound is an important feeding ground for these species. The City’s final report of the 28th Street Landfill Mitigation Committee: Report and Recommendations that was unanimously adopted by the Sacramento City Council on March 13, 2012 includes photos of these two protected species using the Mound as a feeding ground. The report also includes two expanded lists of wildlife that rely on the Mound and/or the adjacent section of the American River Parkway as habitat in Appendix E (pages 60 and 61) and pages 68 through 73). Here’s a link to the Tree Mitigation Committee final
report:https://sacramento.granicus.com/MetaViewer.php?view_id=22&clip_id=2928& meta_id=381061 .
The discussion should also reference additional protected wildlife that use the Mound including the Northern Harrier which is a “California Species of Special Concern.” Other birds that extensively use the Mound that should be mentioned include Peregrine falcons, American kestrels, Merlins, Red-tailed hawks, Red- shouldered hawks, Cooper’s hawks, Barn owls, Great Horned owls, meadowlarks and others.
More recent photos of many of these animals are available if requested.
It is possible there may be some special status plants in the Triangle Area where a City-funded restoration project was implemented to compensate for the loss of trees that were removed from a SLP detention basin, as discussed in the 28th Street Landfill Tree Removal report. Even if there are any sensitive plant species in this area, they would not be impacted by the adoption of the updated site plan.
Also suggest noting that the former SMUD property that comprises an important section of the West SLP area extends halfway into the American River and therefore includes a portion of the American River Parkway. Several species that rely on the aquatic habitat most likely also travel through or rely in part on this portion of the river and riverbank.
Very good to see the reference to the trees in the Triangle area and the statement that “it is not anticipated that trees would be removed for any future facilities and amenities.”
Very good to see the City is in communication with the nearby Courtyard School about the site plan.
Thanks again for the opportunity to comment on the updated Site Plan and the related Check List. I look forward to the adoption and implementation of this important plan.
Sincerely,
Corey Brown