San Pablo General Plan 2035
Public Review Draft, May 2025
San Pablo General Plan 2035
Prepared by
Public Review Draft, May 2025
I
TABLE OF CONTENTS
1 INTRODUCTION
1.1 Purpose and Process .............................................................................................................. 1-1
1.2 Planning Context ..................................................................................................................... 1-7
1.3 General Plan Requirements ................................................................................................ 1-14
1.4 General Plan Themes and Key Initiatives ........................................................................ 1-15
1.5 Development under the General Plan ............................................................................. 1-17
1.6 Plan Organization .................................................................................................................. 1-21
1.7 Administration of the General Plan .................................................................................. 1-22 2 ECONOMIC DEVELOPMENT
2.1 Economic Vision ...................................................................................................................... 2-1
2.2 The Economy of San Pablo ................................................................................................... 2-2
2.3 Ensuring Strategic Readiness .............................................................................................. 2-15
2.4 Sectorial Targeting ................................................................................................................ 2-17
2.5 Cultivating and Attracting a Skilled, Educated, and Well-Trained Work Force .... 2-18
2.6 Improving the Business Climate ........................................................................................ 2-21
2.7 Working Regionally .............................................................................................................. 2-22
2.8 Marketing and Promotion ................................................................................................... 2-23
2.9 Supporting Local Businesses ............................................................................................... 2-24
2.10 Maintaining Fiscal Health ..................................................................................................... 2-26
2.11 Improving the City’s Image ................................................................................................. 2-27 3 LAND USE & PHYSICAL DESIGN
3.1 Background and Context ...................................................................................................... 3-1
3.2 General Plan Land Use Diagram ......................................................................................... 3-6 A. Urban Form .................................................................................................................. 3-17 B. Community Design ..................................................................................................... 3-19 C. Residential Neighborhoods ....................................................................................... 3-20 D. Priority Development Areas ..................................................................................... 3-24 E. Commercial, Entertainment, and Industrial Uses ................................................ 3-29 F. Civic and Institutional ................................................................................................. 3-33 G. Special Planning Subarea ............................................................................................ 3-34 4 GROWTH MANAGEMENT
4.1 Background .............................................................................................................................. 4-1
4.2 The Growth Management Element .................................................................................... 4-4
4.3 Urban Limit Line ..................................................................................................................... 4-6
4.4 Development Review and Mitigation ................................................................................. 4-7
4.5 Transportation Planning ...................................................................................................... 4-11
4.6 Housing Options................................................................................................................... 4-14 5 CIRCULATION
5.1 Circulation Framework ......................................................................................................... 5-1
5.2 Roadway Network ................................................................................................................. 5-4
5.3 Bicycle and Pedestrian Circulation ................................................................................... 5-22
5.4 Public Transit ......................................................................................................................... 5-29
5.5 Truck Routes and Freight Rail ........................................................................................... 5-35
5.6 Parking ..................................................................................................................................... 5-36
5.7 Transportation Demand Management ............................................................................ 5-38 6 PARKS , SCHOOLS , COMMUNITY FACILITIES & UTILITIES
6.1 Parks and Recreation ............................................................................................................. 6-1
6.2 Schools and Community Facilities ...................................................................................... 6-9
6.3 Public Utilities…………………………………………………………………….6-18
7 OPEN SPACE & CONSERVATION
7.1 Open Space Resources ......................................................................................................... 7-1
7.2 Biological Resources .............................................................................................................. 7-4
7.3 Water Resources ................................................................................................................. 7-10
7.4 Land Resources ..................................................................................................................... 7-17
7.5 Cultural Resources .............................................................................................................. 7-20
7.6 Air Quality and Climate Change ....................................................................................... 7-26 8 Community HEALTH & Environmental Justice
8.1 Planning and Public Health ................................................................................................... 8-1
8.2 The Health Element ............................................................................................................... 8-2
8.3 Public Health in San Pablo Today ....................................................................................... 8-5
8.4 Healthy Transportation and Physical Activity ................................................................ 8-12
8.5 Healthy Food Access and Equity....................................................................................... 8-16
8.6 Access to Services and Planning for People First .......................................................... 8-22
8.7 Healthy Neighborhood Planning and Investment Prioritization ................................ 8-26
8.8 Resilience to Urban Heat ................................................................................................... 8-28
8.9 Crime Reduction and Perceptions of Safety .................................................................. 8-33 9 SAFETY & NOISE
9.1 Seismic and Geologic Hazards ............................................................................................. 9-1
9.2 Flood Hazards ......................................................................................................................... 9-7
9.3 Fire Hazards ........................................................................................................................... 9-15
9.4 Hazardous Materials ............................................................................................................ 9-18 II
San Pablo General Plan 2035
9.5 Safety Services and Emergency Response ............................................................. 9-21
9.6 Noise ........................................................................................................................................ 9-28
9.7 References .............................................................................................................................. 9-42 10 IMPLEMENTATION & MONITORING
10.1 Responsibilities ...................................................................................................................... 10-2
10.2 The Plan and the Regulatory System ................................................................................ 10-6
10.3 Capital Improvements Program ........................................................................................ 10-9
GLOSSARY
LIST OF ACRONYMS
PLAN AUTHORS
GRANT DONORS
APPENDIX A: RUMRILL CORRIDOR PLAN
Table of Contents
III
LIST OF FIGURES
Figure 1.1 Regional Location .................................................................................................................1-8 Figure 1-2 Planning Area Boundaries ...................................................................................................1-9 Figure 1-3 San Pablo’s population from 1890 to 2010 ................................................................. 1-12 Figure 3-1 Existing Land Use Pattern ..................................................................................................3-5 Figure 3-2 General Plan Land Use ........................................................................................................3-8 Figure 3-3 Priority Development Areas in San Pablo ................................................................... 3-11 Figure 5-1 Proposed Roadway System ..............................................................................................5-5 Figure 5-2 Planned Improvements .................................................................................................... 5-11 Figure 5-3 Typical Street Sections ..................................................................................................... 5-12 Figure 5-4 Existing and Recommended Bicycle Routes ............................................................... 5-23 Figure 5-5 Transit and Truck Routes ............................................................................................... 5-30 Figure 6-1 Existing and Planned Parks and Recreational Facilities ................................................6-5 Figure 6-2 Educational and Community Facilities .......................................................................... 6-10 Figure 7-1 Vegetation and Special Status Species .............................................................................7-5 Figure 7-2 Water Resources .............................................................................................................. 7-12 Figure 7-3 Liquefaction Susceptibility and Shrink Swell................................................................ 7-18 Figure 7-4 Historical and Cultural Resources ................................................................................ 7-24 Figure 8-1 DACs in San Pablo ...............................................................................................................8-4 Figure 8-2 Health Factors .................................................................................................................... 8-11 Figure 8-3 Urban Heat ......................................................................................................................... 8-29 Figure 8-4 Tree Canopy ...................................................................................................................... 8-30 Figure 9-1 Regional Faults ......................................................................................................................9-3 Figure 9-2 Hazardous Materials and Flood Hazard Areas ..............................................................9-8 Figure 9-3 Wildfire Hazards ............................................................................................................... 9-16 Figure 9-4: Typical Sound Levels........................................................................................................ 9-30 Figure 9-5 Existing Noise Contours ................................................................................................. 9-32 Figure 9-6 Future Noise Contours ................................................................................................... 9-34 IV
San Pablo General Plan 2035
V
LIST OF TABLES
Table 1.3-1 Correspondence Between Required Elements & General Plan Elements ........ 1-15 Table 1.5-1 Population and Housing Assumptions ....................................................................... 1-17 Table 1.5-2 Job Assumptions………………………………………………………………1-18 Table 1.5-3 Population, Housing Units, Households, and Jobs at Buildout (2035) ............... 1-19 Table 1.5-4 Additional Housing Units by Land Use Type ........................................................... 1-20 Table 1.5-5 Jobs to Employed Residents Ratios ............................................................................ 1-20 Table 2.2-1 The Economy of San Pablo ............................................................................................. 2-2 Table 2.2-2 Number of Employed Residents by Industry Group, 1990 to 2000 .................... 2-3 Table 2.2-3 Number of Employed Residents in San Pablo and Contra Costa County, 2018 ......................................................................................................... 2-4 Table 2.2-4 Projected Number of Employed Residents, 2010 to 2050 ................................... 2-10 Table 3.1-1 Existing Land Use .............................................................................................................. 3-4 Table 3.2-1 San Pablo General Plan Land Use Density and Intensity Standards ..................... 3-16 Table 3.2-2 Population, Housing Units, Households, and Jobs at Buildout (2035) ................ 3-17 Table 5.2-1 Transportation Facilities Matrix ..................................................................................... 5-7 Table 5.2-2 Major Transportation Improvements ........................................................................... 5-8 Table 5.2-3 Average Daily Traffit (ADT) Volumes for Select Locations .................................. 5-17 Table 5.2-4 2020 San Pablo VMT Metrics ...................................................................................... 5-18 Table 6.1-1 Existing Public Parks ......................................................................................................... 6-3 Table 6.1-2 Summary of Proposed Parks in San Pablo .................................................................. 6-4 Table 6.2-1 Existing Public Schools in San Pablo ........................................................................... 6-11 Table 6.2-2 Student Generation Factors......................................................................................... 6-12 Table 6.2-3 Buildout Student Population and School Demand .................................................. 6-13 Table 6.3-1 Projected Water Demand and Supply in EBMUD Service Area ......................... 6-19 Table 6.3-2 Wastewater Flows in West County Wastewater District, 2009 ....................... 6-21 Table 6.3-3 West Contra Costa Integrated Waste Management Authority Disposal Rates ................................................................................................................. 6-25 Table 7.2-1 Habitat Types ...................................................................................................................... 7-6 Table 7.2-2 Special Status Species....................................................................................................... 7-8 Table of Contents
Table 7.4-1 Soils within the Planning Area ..................................................................................... 7-19 Table 7.5-1 Buildings of Historic Significance ................................................................................ 7-22 Table 7.6-1 State and National Criteria Air Pollutant Standards, Bay Area Attainment Status, Sources, and Effects ........................................................................................ 7-28 Table 8.2-1 Contra Costa County Mortality Statistics 2020 ........................................................ 8-6 Table 8.2-2 Kaiser Permanente Community Health Needs Assessment for Richmond Service Area- Key Findings ...............................................................................................8-7 Table 8.2-3 Residents Living in Poverty, 2021 ...................................................................................8-8 Table 8.2-4 Educational Attainment for Selected Jurisdictions, 2021 ..........................................8-4 Table 8.2-5 Health Indicators ............................................................................................................. 8-10 Table 8.3-4 Top Health Concerns in San Pablo ............................................................................. 8-10 Table 8.9-1 Violent Crime in Contra Costa and Selected Cities (2021) ................................ 8-34 Table 9.2-1 Existing Flood Plains ........................................................................................................ 9-7 Table 9.6-1: Land Use Compatibility for Community Noise Environments ............................ 9-41 VI
San Pablo General Plan 2035
1 The San Pablo 203 5 General Plan , as updated, is a policy document for the long-range development of the City of San Pablo. It provides the direction for the future growth of the city, and articulates a vision of what San Pablo aspires to be. The Plan draws its ideas from residents, business owners, elected officials, other stakeholders, and City staff, and translates these ideas into a set of policies and actions for present and future generations. As a policy document, the Plan provides the legal basis for all zoning, subdivision, and related actions. It also provides the legal basis for City regulations and the initiation of public projects.
This chapter of the General Plan provides an overview of the document. It gives the reader a background of the planning process and an outline of current community conditions. Key themes and initiatives are highlighted, and summary tables provide an overview of anticipated future conditions.
1.1 Purpose and Process
PURPOSE
The San Pablo General Plan is a policy document mandated by State law to address issues related to physical development and conservation of city resources. The Plan embodies the expressed goals of residents, business owners, elected officials , and other stakeholders and establishes concrete and achievable actions within the planning period. Broad objectives such as “create more jobs”, "promote quality of life" and "enhance neighborhood character" are translated into policies, maps, guidelines, and specific actions that are tangible and can be implemented. The Plan is designed for a r ange of users, from City staff to residents to visitors. It is written in simple language and covers a wide range of issues. Nonetheless, the General Plan cannot, and does not, aim 1 INTRODUCTION
San Pablo General Plan 2035
1-2
to be an all -inclusive document. Where greater specificity is needed, the City will rely on specific plans, the Zoning Ordinance, and subdivision and other regulations and standards to implement its policies.
Specifically, this General Plan aims to achieve the following purposes:
• Outline a long -range vision that reflects the aspirations of the community;
• Establish goals and policies to guide development and conservation decisions by the Planning Commission , City Council and City staff;
• Provide a basis for determining whether specific
development proposals and public projects are in harmony with the City’s long -range vision;
• Reflect San Pablo’s current planning and economic
development efforts;
• Allow City departments, other public agencies, and private developers to design projects that enhance the character of the community, promote public health, preserve
environmental resources, and minimize hazards; and
• Provide the basis for establishing and setting priorities for detailed plans and implementing programs, such as the
Zoning Ordinance, subdivision regulations, specific and area plans, and the Capital Improvement Program.
WHY UPDATE NOW?
The City of San Pablo adopted the 2030 General Plan in 2011. Since then, the city has undergone a number of c hanges in its demographics and built form . The legal environment governing land use, environmental preservation, housing, and other planning issues has also changed. A revision of the Plan is therefore necessary to eliminate any obsolete information and policies, and ensure legal conformity . The 2024 -2025 General Plan Update has occurred in two stages, with the first one incorpor ating the Sixth Cycle Housing Element for 2023 – 2031, along with updates to the Health Element to create a new Community Health and
Environmental Justice Element, and minor changes to the Safety Element. The second stage involves more minor changes to all the other Elements, including incorporation of a new Area Plan for the Rumrill Corridor and further minor update s to the Safety and Noise Element.
Chapter 1: Introduction
1-3
The General Plan aims to address a range of challenges such as the need to manage growth sustainably, enhance the city’s economy, and protect San Pablo’s environment resources :
• Managing growth sustainably. Sustainable development is defined as development that meets the needs of the present without compromising the ability of future generations to meet their own needs. As San Pablo’s population grows,
and development pressure increases, it is becoming more difficult to strike the balance between different land use needs. Policies in the Plan will help ensure that economic and residential development do not come at the expense of livability, equity, and environmental sustainability. The updated Community Health and Environmental Justice
also will help achieve this goal.
• Enhancing the city’s economy and competitiveness.
Enhancing the city’s ability to attract jobs and investment will be crucial for San Pablo to remain competitive with other cities that have successful economic development
programs in place. This effort will involve building a
diversified job base, expandi ng education and training, cooperating with other cities, and developing regional
attractions. Plan policies will help City staff and decision makers outline a path to achieve these goals.
• Preserving environmental resources. To ensure new
development contributes to environmental quality, the
Plan includes policies to facilitate infill development and protect open space. Land use and growth management
policies ensure incompatible land uses do not exist next to each other and ne w developments mitigate any adverse
impacts they may impose on the environment.
The San Pablo General Plan is forward -looking, expansive, and long-range. The adoption of this Plan Update is timely and will assist decision makers in the implementation of a long -range development program that meets the challenges of the present day and prepares the city for opportunities and challenges in the future.
PLAN PREPARATION PROCESS
Visioning, Collaboration, and Public Participation
The visioning phase of the 2035 General Plan process was initiated by the City of San Pablo in the Fall of 2008. The sharing of information and ideas between City staff, elected officials, consultants, and residents was central to the General Plan update process. The City Council appointed a General Plan Advisory San Pablo General Plan 2035
1-4
Committee (GPAC) to serve as representatives of the community during the preparation of the new Plan and provide input on evolving policies and products. At different stages of the plan - making process, residents, businesses, property owners, as well as non-profit groups and public agencies were invited to workshops and open houses to provide input and feedback.
The plan-making process involved City staff working closely with land use, traffic, market demand, and other consultants appointed by the City to analyze existing conditions and development opportunities. Interim reports were prepared at different stages of the process to document community feedback, findings of technical analyses, choices, and a proposed policy framework.
These reports were reviewed by the GPAC, Planning Commission, and City Council, each of which in turn provided feedback to City staff and consultants to refine the Plan.
A community survey was prepared and analyzed at the end of 2008 in order to attract and solicit feedback from a wide audience.
After understanding existing conditions and preliminary planning issues of concern, the first Community Workshop was held in April 2009 to establish a vision that would guide the General Plan.
During this time residents provided feedback on what they like most about San Pablo and what they would like to see happen under the new plan.
Community workshops attended by residents and stakeholders were an integral part of the General Plan Update process.
Chapter 1: Introduction
1-5
Evaluating Choices
The second phase of the update process began with City Council meetings followed by a workshop to present two Alternative Concept Plans for consideration. The Alternative Plans illustrate a range of choices —visions of the city in 203 5—inspired by the concepts and desires articulated during GPAC meetings and public forum. Following the City Council meetings, the Alternative Plan Workbook was prepared in June 2009, detailing the alternative concepts.
Establishing a Preferred Plan and General Plan Goals
and Policies
The third phase of the process involved refining alternative plans into a single Preferred Plan Concept based on community feedback.
The Preferred Plan combines the most desirable aspects of the Alternative Concept Plans, with some modifications requested by the community and endorsed by the GPAC. The result was presented to the GPAC for review in August 2009. The adopted Preferred Plan Concept provided the basis for this General Plan.
The next step of the process involved establishing goals and policies that address the City’s development goals. Community workshops and meetings involving the GPAC, City officials and staff, key stakeholders, and San Pablo residents were held to discuss each element of the General Plan. The GPAC also reviewed policy packets. Feedback from all parties was then incorporated to produce this General Plan.
The final step of the update process involved the preparation of this Draft San Pablo 203 5 General Plan and Environmental Impact Report (EIR) for public review and adoption. The final EIR was prepared and certified on April 18, 2011. Documents, maps, and meeting agendas are available for public download via the City website.
San Pablo Avenue Specific Plan
On September 19, 2011, the City adopted a Specific Plan for the San Pablo Avenue Corridor. This detailed document has guided the successful redevelopment of the Circle S area around the current City Hall and has helped to encourage new housing and
commercial development elsewhere along the corridor.
2015 – 2022 Housing Element Update
As required by State Law, the City adopted a new Housing Element on April 6, 2015 that superseded the Housing Element prepared at the time of the 203 5 General Plan. The 2015 -2022 San Pablo General Plan 2035
1-6
Housing Element has now been superseded by the 2023 -2031 Housing Element, which was adopted on March 18, 2024, and certified by the Housing and Community Development
Department on May 20, 2024.
2024 – 2025 Housing Element and General Plan Updates
In 2020, the City be gan work on its Sixth Cycle Housing Element Update for 2023 – 2031, along with a number of updates to the General Plan, including the addition of a new Area Plan for the Rumrill Corridor, the addition of an Environmental Justice Element (consolidated with the Health Element to form the Community Health and Environmental Justice Element ), required revisions and updates to the Safety and Noise Element, and minor revisions and updates throughout all the elements. The Land Use and Physical Design Element was also updated to incorporate the Rumrill Corridor Plan and updates to selected locations to bette r encourage housing development and job growth in San Pablo. The 2007 Specific Plan for 23rd Street will be superseded with this Land Use Element update as the Specific Plan no longer provides sufficient guidance for the development of this important commercial corridor. An extensive public engagement effort was undertaken for the Housing Element, General Plan Update, and Rumrill Corridor Plan, including community workshops, focus groups, surveys, pop -ups, and public presentations. These efforts are documented on the City’s webpage and in the companion planning documents. The environmental effects of these updates were documented in two comprehensive addenda to the 2030 General Plan Environ mental Impact Report .
For the 2024-25 update, a multifaceted, bilingual (English-Spanish) community engagement strategy was implemented to proactively engage local residents and businesses in the process. A dedicated project page was established on the City's website to serve as a one- stop portal for information on the process, and opportunities to participate in the process were promoted with fliers distributed at community events and via e -mail blasts and social media. The General Plan Update and Rumrill Corridor Plan were informe d by a range of community engagement activities, including pop -up event outreach, a citywide survey, property/business owner forums, a block party and community meeting, and "reel polls" conducted via the City and the Police Department's social media channels. Additionally, a Technical Advisory Committee (TAC) composed of City staff from various departments and
representatives of partner agencies met three times in the process to advise on technical aspects of the Corridor Plan, including Chapter 1: Introduction
1-7
transportation, utilities, public services, and economic development.
1.2 Planning Context
This section describes the city’s location, its planning boundaries, and its history, in order to establish the city’s planning context and place in the region.
REGIONAL LOCATION
The City of San Pablo is located in the northwestern portion of Contra Costa County in the State of California. Although city limits do not extend to the shore, it is located just inland from the east side of San Pablo Bay. The city is surrounded on three sides by the City of Richmond and on its fo urth by the unincorporated community of El Sobrante. Interstate 80 separates the city into east and west portions.
In terms of proximity to services, San Pablo is just minutes away from the Bay Area cultural and job centers of Berkeley, Oakland, and San Francisco. A number of large parks, including Wildcat Canyon Park and Hilltop Lake Park, are within close proximity to city borders. The city is well served by AC Transit, and close by to the Bay Area Rapid Transit (BART) station in Richmond. The regional setting is depicted in Figure 1-1.
PLANNING BOUNDARIES
City Limits
San Pablo’s city limits encompass approximately 1,66 7 acres (2.6 square miles) of incorporated land or 87 percent of the Planning Area ( Figure 1 -2). The existing city limits include residential, commercial and industrial developments as well as public facilities, including parks and schools .
Sphere of Influence
The Sphere of Influence (SOI) is a planning boundary outside of an agency’s jurisdictional boundary (that is city limit line) that designates the agency’s probable future boundary and service area.
The Contra Costa County Local Agency Formation Commission (LAFCO) has jurisdiction over def ining San Pablo’s SOI and acts on annexations and approval of service contracts outside city limits.
The purpose of the SOI is to ensure the provision of efficient services while discouraging urban sprawl and the premature conversion of agricultural and open space lands by preventing overlapping jurisdictions and duplication of services . In November Æb
Æb
San
Pablo
BURLINGTON NORTHERN SANTA FE RAILROAD
UNION P ACIFIC RAILROAD
Point Pinole
Regional Park
Wildcat Canyon
Regional Park
Richmond
BART Sta ti on
El Cerrito
Del Nor te
BART Sta ti on
San Pablo Ave
San P
abloAve
Parr Blvd
Stockton Ave
Rumrill Blvd
Brookside Dr
13th St Mc Bry deAve
22nd St
23rd St
KearneySt
KeyRouteBlvd
DornanDr
S 39th St
Hilltop Dr
Wright Ave
ArlingtonAve
Castro St
1st St
Filbert St
Fairmount Ave
Manor Rd
S 23rd St
Church Ln
S 37th St
Rivers St
S 2nd St
37th St
Wilson Ave
Marina Way
S Garrard Blvd
ColusaAve
Broadway St
Rd 20
Solano Ave
Appian
W
ay
Pennsylvania Ave
BarrettAve
Manila Ave
Schmidt Ln
AshburyAv
e
San Mateo St
Chesley Ave
S
HarborW
ay
SMarinaW
ay
Navellier St
TennentAve
Atlas Rd
Harbour Way
Arlington Blvd
W Cutting Blvd
McBryde Ave
Maricopa Ave
Richmond
St
Moeser Ln
30th
St
BlumeDr
Giant Hwy
29th St
3rd St
PinoleValley
Rd
Esmond Ave
Garvin Ave
Potrero Ave
Central Ave
Roosevelt Ave
34th St
Ohio Ave
Tara Hills Dr
Giant Rd
Market Ave
ValleyViewRd
El PortalDr
Carlson Blvd
Macdonald Ave
San Pablo Dam Rd
Cutting Blvd
Richmond Pkwy
%&n(
!"c$
Richmond
North
Richmond
San Pablo Strait
El Sobrante
SOURCE: City of San Pablo, 2024; Contra Costa County GIS, 2024; Dyett & Bhatia, 2024 City of San Pablo
Sphere of Influence
Urban Limit Line
Urbanized Land
Open Space
Interstate Highway
San Pablo Avenue
Major Road
BART Rail
Railroad
El Cerrito
Hilltop
Bayview
Pinole
0 ½ 1¼
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UV1
San Pablo Bay
Pacific
Ocean
San Pablo
Richmond
Hercules
Oakland
Alameda
Tiburon
Novato
San Rafael
Sausalito
Mill Valley
Pinole
Marin
Contra Costa
Alameda
San Francisco
Solano
Sonoma
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Figure 1-1:
Regional Location
§¨¦80
City of
Richmond
City of
Richmond
21ST ST
11TH ST
SAN PABLO AVE
17TH ST
VALE RD
DOVER AVE
20TH ST
STANTON AVE
PINE AVE
MINER AVE
19TH ST
16TH ST
15TH ST
AMADOR ST
RIVERS ST
SUTTER AVE
EMERIC AVE
12TH ST
14TH ST
HILLCREST RD
ROLLINGWOOD DR
13TH ST
SANFORD AVE
LAKE ST
RIDGE RD
CALIFORNIA AVE
22ND ST
18TH ST
BUSH AVE
JOHN AVE
WILLOW RD
ALPINE RD
BROOK WAY
PALMER AVE
TYLER ST
ESPANOLA CT
VAN NESS ST
POWELL ST
ARUNDEL WAY
DEVON WAY
MARIN AVE
MASON ST
WILCOX AVE
STANDARD ST
POST AVE
CHEVY WAY
ALFREDA BLVD
STONE ST
BAYO VISTA AVE
KELLEY AVE
FORDHAM ST
GREENWOOD DR
MANOR DR
YUBA AVE
MANCHESTER AVE
PULLMAN ST
FOLSOM AVE
MISSION AVE
AVON LN
VILLA DR
MISSION BELL DR
MACARTHUR AVE
MORROW DR
BEAU RIVAGE
BOWHILL LN
DOUGLAS ST
MIFLIN AVE
TRENTON BLVD
BONITA RD
MERRITT AVE
GLENLOCK ST
DEL CAMINO DR
FILLMORE ST
PABLO VISTA AVE
LOVEGROVE AVE
GLENN AVE
COLIN ST
ACAPULCO DR
MARELIA CT
BANCROFT LN
MONTOYA AVE
VENTURA AVE
ABELLA CIR
CLARE ST
JOEL CT
GERALD AVE
EVENS AVE
MANZANILLA DR
CARLFIELD ST
CORTE ST
OHARE AVE
CONTRA COSTA AVE
CASINO AVE
RUMRILL RD
WYMAN ST
RIVERSIDE AVE
REGINA AVE
BARRANCA ST
HUMBOLDT ST
E VICTORIA CT
SHASTA AVE
HARBORVIEW AVE
CLEMENT AVE
CONNECTICUT AVE
CHATTLETON LN
UNIVERSITY AVE
BARBARA LN
KIRK LN
JEAN CT
MADRONE WAY
WESTGATE CIR
W VICTORIA CT
FRIEDA CT
BROOKSIDE AVE
MONTE BUENA ST
DODSON ST
JUDITH CT
WANLASS AVE
DRAKE WAY
LARCHMONT LN
18TH ST
19TH ST
20TH ST19TH ST
BUSH AVE
15TH ST
15TH ST
21ST ST
18TH ST
SHASTA AVE
GLENN AVE
17TH ST
MERRITT AVE
RIVERSIDE AVE
14TH ST
18TH ST
DOVER AVE
19TH ST
22ND ST
MASON ST
15TH ST
16TH ST
17TH ST
POST AVE
LAKE ST
20TH ST
21ST ST
RIVERS ST
YUBA AVE
19TH ST
22ND ST
16TH ST
17TH ST
MINER AVE
ROSE ARBOR A VE
Bayview A ve
BOLDUC CT
CAPITO
LH
ILL AVE
W ESTVIEW
PL
N
ARLINGTONBLVD
H
ILLCREST
RD
MI
FFIN
AVE
EL PORTAL DR SAN PABLO DAM RD
ROAD 20
ROAD 20
BROOKSIDE DR
MARKET AVE
MARKET ST CHURCH LN
CHURCH LN
23RD ST
VALENCIA WAY
BROADWAY
ROAD 20 RUMRILL BLVD
CHESLEY AVE
RICHMOND PKWY
RICHMOND PKWY
City
Hall
Contra Costa
College
John
Herbert
Davis Park
San Pablo
Lytton
Casino
St. Joseph
Cemetery &
Funeral Center
Wanlass
Park
Unincorporated
Unincorporated
North
Richmond
City of
Richmond
Unincorporated
Unincorporated
Rheem Creek
San Pablo Creek
Wildcat Creek
San Pablo Creek
Wildcat Cr eek
San Pablo Creek
BURLINGTON NORTHERN SANTA FE RR
UNION PACIFIC RR
SOURCE: City of San Pablo, 2024; Contra Costa County GIS, 2024; Dyett & Bhatia, 2024
0 0.2 0.40.1
Miles
Planning Area Boundaries
J:\GISData\581_SanPablo_GP\GIS\Projects\GeneralPlan\General Plan Map Updates\Fig 1-2 Planning Area Boundaries.mxd Figure 1-2:
City Limits
Sphere of Influence
Urban Limit Line
Unincorporated
Major Roads
Minor Roads
Railroads
San Pablo General Plan 2035
1-10
2009, the Contra Costa Local Agency Formation (LAFCO) adopted a new SOI for the City of San Pablo in conjunction with the Municipal Services Review report. The city’s SOI boundary now incorporates an additional 228 acres , including the Rollingwood residential area located along El Portal Drive and I -80 at the city’s northeastern border, and the Hillside neighborhood, which is adjacent to the northern boundary of Alvarado Park at the eastern edge of the city.
Urban and Built -up land is the most common land category found within the City SOI.
Urban Limit Line
The primary purpose of an Urban Limit Line (ULL) is to limit the extent to which urban development occurs within a specific time period. The ULL is a requirement established under the Contra Costa Transportation Improvement and Growth Management Program (Measure J). The City has adopted the Contra Costa County mutually-agreed-upon ULL as its own. The ULL includes all land within the City’s Planning Area.
Planning Area
According to State law, the City can establish a Planning Area that consists of land within the city and, “any land outside its boundaries which, in the planning agency’s judgment, bears relation to its planning.” The San Pablo Planning Area encompasses
approximately 1,895 acres, or about 2. 96 square miles. (Figure 1-2).
More specifically, the Planning Area extends north along San Pablo Avenue to Richmond Country Club, northeast to the Rollingwood residential area, east towards Alvarado Park near San Pablo Dam Road, west towards Giant Road and the Union Pacific Railway tracks, and south towards Costa Avenue. The Planning Area includes land that has relevance for long -term development or conservation. The Planning Area also includes open space on hillslopes next to San Pablo Dam Road and several creeks that traverses San Pablo from west to east. The Planning Area has been defined with the intention of focusing future growth on land contiguous to the city and encouraging urban infill. Being included in the Planning Area does not necessar ily mean the City is considering annexation. The Rollingwood residential area comprising 85 acres of low-density residential land is within the City’s Planning Area but outside of the city limits.
Chapter 1: Introduction
1-11
A BRIEF HISTORY OF SAN PABLO
Today's San Pablo was originally occupied by the Cuchiyun band of the Ohlone indigenous people. Archaeologists have dated artifacts from the area to be at least three thousand years old. The Ohlone people who lived in the village at San Pablo called themselves the Huchuin.
In the 1770s, the Spanish arrived in the San Francisco Bay and founded a mission there. As the Spanish outpost gradually expanded in size, parties were sent out to explore the East Bay. The first written record of San Pablo was in 1811 when a priest by the name of Ramon Abella renamed the Huchuin land to “Point San Pablo.” In 1815, a farm was started in the San Pablo area to provide food for the mission in San Francisco. The farmstead was owned by Francisco Castro, who employed indigenous people to raise grain, fruit trees, and cattle.
In 1823, Francisco Castro petitioned the government of Mexico for a land grant and was given 17,000 acres which included the future towns of Richmond, El Cerrito, and San Pablo. After Castro’s death, the agricultural land that included San Pablo continued to be cultivated by Castro’s family until the 1850s, when European American settlers began to develop a town around San Pablo Creek.
San Pablo was an important community during the gold rush years because of its location on the major overland route to the gold fields.
In 1854, San Pablo was instituted as a township. An influx of Portuguese, Irish, Italian, and Japanese immigrants settled in the area. During this period, a well-developed agricultural and nursery industry flourished in the vicinity of San Pablo, along with a growing number of homes and businesses. By 1906, San Pablo looked like an established small town. There were Western Union Telegraph lines, saloons, a post office, a train station, and a school that stood on what is now the corner of Market and 21st Street. The town’s population was still small compared to the numbers we know today, numbering less than 1,000 at this time.
San Pablo General Plan 2035
1-12
Figure 1-3 San Pablo’s population from 1890 to 2020
Source: Historical Population of California, Census 1990, 2000, 2010, 2020; Department of Finance, 2009.
San Pablo’s population began to grow more rapidly during the 1940s and 1950s, owing to returning veterans from World War II and highway construction in California. Many homes were built in San Pablo in the Old Town neighborhood during this time. In 1940, San Pablo’s population was just 2,500. By 1950, it had increased to approximately 14,500. This rapid and unplanned growth brought with it poor infrastructure and increasing unemployment.
In 1948, San Pablo residents voted to incorporate to give the local government more power to exercise control over housing
construction and planning. The city’s first Master Plan was developed shortly following incorporation. A decade and a half later, these planning efforts paid off. The city saw major development in the form of Brookside Hospital, Contra Costa College, and El Portal Shopping Center.
367
2500
14476
19687
21461
19750
25078
30215 29139
32127
0 5000
10000
15000
20000
25000
30000
35000
1890 1900 1910 1920 1930 1940 1950 1960 1970 1980 1990 2000 2010 2020
POPULATION
YEAR
City Incorporated
City continues to
grow from 1980
onwards
First General Plan
Chapter 1: Introduction
1-13
In 1960, the first General Plan was adopted by the City. This plan divided the city into nine residential districts and identified development densities for each. During this decade, a large number of Mexican and Central American immigrants began to settle in San Pablo. This continued the rapid rise in population and consequent need for schools and other public services. By this time, the city had become mostly urbanized with the majority of the agricultural land replaced by urban uses.
View of San Pablo Avenue at the Wildcat Creek crossing, 1941.
The population growth in San Pablo began to slow down in the 1970s and 1980s even while the city continued to develop. In 1976, the city won the All American City award, a national award that was given in recognition of San Pablo’s initiatives to improve the city. In part as a result of the 2030 General Plan, a second All American City award was granted to San Pablo in 201 4, in recognition of its efforts to improve the health of its residents.
By the time of the 2020 Census, San Pablo’s population had grown to 32, 127, with the addition of several new homes and apartments.
Today, San Pablo continues to attract new residents from all over the country. Its central location combined with affordable home prices and proximity to outdoor recreation areas and placement along I-80 make it one of the most desirable places to live in the San Francisco Bay Area.
San Pablo General Plan 2035
1-14
1.3 General Planning Requirements
State law requires each California municipality to prepare “a comprehensive, long -term general plan for the physical development of the county or city, and any land outside its boundaries which in the planning agency's judgment bears relation to its planning.” State requirements call for general plans that “comprise an integrated, internally consistent and compatible statement of policies for the adopting agency.”
The City’s General Plan is considered by many to be its “Constitution” for development—it creates the framework within which decisions are made on how and where to grow, on land use, transportation, housing, open space, conservation, safety and noise. California's tradition of allowing local authority over land use decisions means that cities have considerable flexibility in preparing their general plans. Cities may organize general plan elements in any order or combination they wish.
Additionally, it allows cities to include optional elements in their general plans, such as econo mic development or community design, as long as the mandated elements are covered.
All elements, whether mandated or optional, have equal legal status.
The content of general plans and rules for their adoption and subsequent amendment are established by the California Government Code. Together, State law and judicial decisions establish three overall guidelines for general plans:
• The General Plan Must Be Comprehensive. This requirement has two aspects. First, the general plan must be geographically comprehensive. That is, it must apply throughout the entire incorporated area and it should include other areas that the City determines are relevant to its planning. Second, the general plan must address the full range of issues that affect the city's physical development.
• The General Plan Must Be Internally Consistent. This
requirement means that the general plan must fully integrate its separate parts and relate them to each other without conflict. “Horizontal” consistency applies both to figures and diagrams as well as general plan text. It also applies to data and analysis as well as policies. All adopted portions of the general plan, whether required by State law or not, have equal legal weight. None may supersede another, so the general plan must resolve conflicts among the provisions of each element.
Chapter 1: Introduction
1-15
• The General Plan Must Be Long -Range. In order to avoid incremental planning decisions which may occur over many years, and may eventually conflict with each other, the General Plan must be long range. The General Plan is
intended to take a long -term view of development and
considers issues that may impact the community for the next ten or twenty years.
The City of San Pablo’s 203 5 General Plan includes the following elements required by State law: Land Use, Circulation,
Conservation, Open Space, Noise, Safety, and Environmental Justice. It also includes a Growth Management Element, as mandated by Measure J passed by residents of Contra Costa County in 2004. Finally, several optional elements that address local concerns are included: Parks, Schools, Public Facilities and Utilities, and Community Health. The Housing Element is published as a separate document. Table 1.3-1 outlines how the required elements and optional elements correspond with the Plan chapters.
Required Element General Plan Element
Land Use Chapter 3: Land Use & Physical Design
Growth
Management Chapter 4: Growth Management
Circulation Chapter 5: Circulation
Open Space Conservation Chapter 7: Open Space & Conservation Environmental Justice Chapter 8: Community Health & Environmental Justice
Safety Chapter 9: Safety & Noise
Noise Chapter 9: Safety & Noise
Housing Contained in separate volume.
1.4 General Plan Themes and Key
Initiatives
Key themes for the 2035 General Plan were identified and endorsed by the General Plan Advisory Committee (GPAC), based on input by the public, key stakeholders, and City staff. As the Plan took shape, these ideas were further refined. The maps and policies in the General Plan are structured around the following key initiatives:
Table 1.3-1 Correspondence Between Required Elements &
General Plan Elements
San Pablo General Plan 2035
1-16
• Economic Development. The proposed General Plan
supports economic development through the
redevelopment of vacant and underutilized sites. The
General Plan Land Use Diagram supports new
employment generating uses along major transportation
corridors as well as smaller scale neighborhood
commercial centers dispersed throughout the city to
provide a range of employment opportunities for local
residents.
• Pedestrian and Bicycle -Friendly Community. The creation of a pedestrian and bicycle -friendly community is a chief objective of the Plan. Plan policies aim to enhance San Pablo’s urban character with diversified, mixed-use
neighborhoods and pedestrian and bicycle access to parks, schools, and neighborhood retail.
• Community Facilities. The General Plan responds to
community desires for family-oriented community
facilities through new land use designations, such as
Mixed-Use Center South that allows community uses to
develop among residential and retail development, and
direction for impact fees to fund improvements.
• Health and Safety. The Plan aims to improve community health and safety through greater cooperative efforts with the Police Department as well as through multi -modal
transportation planning, encouraging healthy living
through food strategies, equitable job and housing
opportunities, and safety through community design.
• Parks and Open Space. Parks and open space are a critical part of the city’s livability, but do not yet meet the needs of the city’s population. The Plan calls for future parks and public open space throughout the Planning Area and the development of a network of trails along San Pablo,
Wildcat, and Rheem creeks to provide recreational areas in close proximity to neighborhoods.
A key theme of the Plan is to create more
parks for San Pablo residents to enjoy.
Chapter 1: Introduction
1-17
1.5 Development Under the General
Plan
This section describes future “buildout” potential under the General Plan. Buildout refers to the hypothetical situation where all anticipated development under the General Plan has occurred. For this General Plan, the buildout year is 203 5. What this means is that the General Plan has designated adequate land to accommodate anticipated housing and job needs in San Pablo through 203 5. For a more detailed analysis of General Plan buildout, refer to the Land Use and Physical Design Element in Chapter 3.
METHODOLOGY AND ASSUMPTIONS
In order to determine the total housing, population, and additional employment expected by 2035, a detailed set of assumptions was developed, as presented in Table 1.5 -1, and Table 1.5 -2. These assumptions include the proportion of residential and non-residential mix in mixed-use areas; densities of residential districts; intensities of non -residential districts; and employment multipliers (i.e., square feet per job).
The estimate for additional low -density residential housing units includes both new units developed on infill sites as well as accessory dwelling units (ADUs) on existing single -family lots. The average household size is assumed to be 3.1 for an average household and 1.5 for an ADU.
Table 1.5-1 Population and Housing Assumptions
Land Use Category
Gross
Acreage of
Opportunity
Sites
Residential
Mix
Housing
Density
(du/ac)
Low Density Residential 4.8 100% 8.0
Medium Density Residential 3.2 100% 18.0
High Density Residential 17.3 100% 30.0
Mixed Use Center North 2.7 70% 60.0
Mixed Used Center South 16.1 20% 32.0
Mixed Use Center West 3.5 75% 60.0
Commercial Mixed Use 28.6 50% 20.0
Residential Mixed Use 25.6 65% 14.0
Employment Mixed Use 0.75 25% 12.0
1 Average household size assumed to be 3.1 persons per household, with 1.5 persons per ADU household.
Source: Dyett & Bhatia, 2010 and 2025.
San Pablo General Plan 2035
1-18
Table 1.5-2 Job Assumptions
Gross
Acreage of Non- Building Employment
Potential
Buildup
Land Use Category
Opportunity
Sites
Residential
Mix
Intensity
(FAR) 1
Intensity2 (Sq
ft per Job)
Space3
(Sq ft)
Mixed Use Center North 2.7 30% 0.50 400 47,000
Mixed Used Center South 16.1 80% 0.70 400 491,900
Mixed Use Center West 3.5 25% 2.48 Various4 373,250
Commercial Mixed Use 28.6 50% 0.50 400 390,200
Residential Mixed Use 9.9 35% 0.20 345 74,800
Neighborhood Commercial 13.3 100% 0.32 430 13,600
Regional Commercial 25.6 100% 0.32 510 334,000
Entertainment District Overlay 10.1 100% 0.60 600 264,000 Employment Mixed Use 0.75 75% 0.60 700 27,660
1 A building FAR or Floor Area Ratio, is used to calculate the total floor area of buildings on a lot based on the size of the lot. 2 This factor is used to calculate the number of jobs a certain type of land use will accommodate. For example, the Industrial Mixed Use land use is expected to create 1 job per 500 square feet of floor area. 3 Calculated on a “net” basis, after deducting land uses for rights-of-way and easements. 4 Assumes 300 square feet per retail/restaurant job; 1,000 square feet per grocery store job; and 120 square feet per job in a 44,000 square-foot commercial kitchen.
Source: Dyett & Bhatia, 2010 and 2025.
POPULATION AND RESIDENTIAL UNITS
Table 1.5-3 summarizes buildout for the proposed General Plan by population, households, and housing units. Based on development trends, regional growth forecasts, and assumptions for future growth, it is estimated that the San Pablo Planning Area will accommodate approximately 34,950 people at buildout in 2035, an increase of about 8.5 percent over the 2010 population estimate of 32,200.1 Residential growth is anticipated primarily within the City limits. Over a 20-year period, this represents an annual growth rate of 0.4 percent. The population increase will be driven primarily by regional economic growth and migration.
1 This population estimate (34,950) is higher than the Association of Bay Area Governments (ABAG) population projection based on year 2007 data (32,600 in 2030) and lower than the same projection based on 2009 data (36,700 in 2030).
Chapter 1: Introduction
1-19
Table 1.5-3 Population, Housing Units, Households, and Jobs at Buildout (2035)1
Buildout
Percent
Annual
2010 Additional (2035) Growth
Population2 32,200 2,750 34,950 0.4
Households 9,680 940 10,620 0.5
Housing Units 10,520 990 11,510 0.5
Jobs 5,900 2,610 8,510 1.8
1 Existing and projection numbers rounded to the nearest ten. 2 Buildout population calculations assume 3.1 persons per household and 1.5 persons per secondary unit.
Source: Association of Bay Area Governments, 2009; City of San Pablo, 2010; Dyett& Bhatia, 2025.
As shown in Table 1.5 -3, San Pablo’s approximately 10,520 housing units (9,680 households) existed in the San Pablo Planning Area in 2010. The households increased to 9,847 in the 2020 Census, but the housing unit count had dropped to 9,941 .
The 2035 General Plan will accommodate an additional 990 housing units (940 households) beyond the 2010 level . Most of the new residential developments are expected to be developed along major roads, notably San Pablo Avenue , 23rd Street , and Rumrill Boulevard. In total, San Pablo is expected to have 11,510 housing units (10,620 households) by 2035.
JOBS
As shown in Table 1.5-3, San Pablo will add approximately 2,610 jobs to reach a total of 8,510 jobs at buildout. Over a 20-year period, this represents an average annual growth rate of about two percent.
The mix of new jobs by land use type during the planning period is shown in Table 1.5-4. The Mixed-Use Center South land use category (at the Circle S site around the current City Hall) would accommodate about 36 percent of these new jobs while the Commercial Mixed Use land use category would accommodate about 26 percent. The other land uses under the proposed General Plan would accommodate the remaining 38 percent of new jobs.
San Pablo General Plan 2035
1-20
Table 1.5-4 Additional Jobs by Land Use Type
Land Use Category Jobs Percent of Total
Mixed Use Center North 100 4
Mixed Used Center South 770 30
Mixed Use Center West 180 7
Commercial Mixed Use 700 27
Residential Mixed Use 140 5
Neighborhood Commercial 100 4
Regional Commercial 130 5
Entertainment District Overlay 440 17
Employment Mixed Use 50 2
Total 2,610 100
Totals may not add up due to rounding.
Source: Dyett & Bhatia, 2010 and 2025.
JOBS/EMPLOYMENT BALANCE
Jobs/employment balance represents the ratio of the number of jobs to the number of employed residents in a given area. San Pablo’s jobs-to-employed-residents’ ratio would be one-to-one if the number of local jobs in the city equaled the number of employed residents.
In theory, a perfect 1.0 ratio could result in no one commuting in or out of the city to find work. In reality, this balance is more of a planning technique than a regulatory tool, and successful plan implementation must ultimately recognize the myriad
considerations that influence where people choose to live and work.
As shown in Table 1.5-5, the current jobs-to-employed-residents’ ratio in San Pablo is 0.46, which means most working adults travel out of the city to work. During the planning period that runs through 2035, the General Plan will add more jobs than population.
As a result of these projections, the jobs/employment ratio should improve to 0.51, with the potential for reducing commuting for work and ameliorating peak hour traffic congestion.
Table 1.5-5 Jobs to Employed Residents Ratios
2010 Buildout
Jobs1 5,900 8,510
Employed Residents2 12,880 16,630
Ratio 0.46 0.51
1 Jobs here refer to local jobs only.
2 An employed resident is defined as a resident with a job, regardless of where the job is.
Source: ABAG 2009, Dyett & Bhatia 2010.
Chapter 1: Introduction
1-21
1.6 Plan Organization
This section describes the organization of the San Pablo 2035 General Plan and the structure of guiding and implementing policies. The Plan is organized as follows:
1. Introduction. This chapter includes the General Plan purpose, process, and key initiatives, planning context, State requirements, development projections, and requirements for administration of the Plan.
2. Economic Development. This chapter sets out goals and policies on job creation, marketing, improving business climate, maintaining fiscal health, and other efforts to enhance the city’s economy.
3. Land Use & Physical Design. This chapter provides the physical framework for land use and development in the
city. It also includes urban design policies to improve the city’s visual quality and livability.
4. Growth Management. This chapter addresses the topic of sustainability and establishes policies to ensure new
development pays its fair share of the costs associated with growth. The element is consistent with requirements under the Measure J Growth Management Program administered
by the Contra Costa Transportation Authority.
5. Circulation. This chapter includes policies, programs, and standards to maintain efficient circulation. It identifies future street and traffic improvements, and addresses
alternative transportation modes and parking to enable a multi-modal circulation system.
6. Parks, Schools, Community Facilities & Utilities. This chapter outlines policies relating to parks and recreation, schools, and community facilities. It also addresses local utilities, such as water supply, sewerage, solid waste
management, and recycling.
7. Open Space & Conservation. This chapter includes policies relating to open space, land resources, habitat and biological resources, water quality, air quality, and historic and archaeological resources and conservation.
8. Community Health & Environmental Justice . This chapter describes the relationship between planning and the natural, physical, and social environment, public health, and quality of life; reviews current health conditions and determinants in San Pablo; and sets forth policies to improve the
San Pablo General Plan 2035
1-22
environmental and social conditions for health and
provide protection from environmental hazards.
9. Safety & Noise . This chapter addresses the risks posed by seismic and geologic hazards, flooding, and hazardous
materials. It also includes policies on police, fire, and emergency services and policies to limit the impacts of noise sources throughout the city.
10. Implementation & Monitoring. This chapter includes
details on the manner in which the Plan is implemented.
POLICY STRUCTURE
Each chapter of the General Plan includes brief background information to establish the context for policies in the chapter. This background material is neither a comprehensive statement of existing conditions nor does it contain adopted information.
This background information is followed by two sets of policies, which together articulate a vision for San Pablo that the General Plan seeks to achieve:
• Guiding Policies are the City’s statements of its goals and philosophy.
• Implementing Policies represent commitments to specific actions. They may refer to existing programs or call for establishment of new ones.
Policies provide guidance for development review, infrastructure planning, community facilities and services, and protection for the city’s resources by establishing planning requirements, programs, standards, and criteria for project review. Explanatory material or commentary accompanies some policies. The use of “should” or “would” indicates that a statement is advisory and not binding; with details to be resolved in General Plan implementation. Where the same topic is addressed in more than one chapter, sections and policies are cross-referenced.
1.7 Administration of the General Plan
The General Plan is intended to be a dynamic document and the administration of the Plan reflects that. As such, it may be subject to more site -specific and comprehensive amendments over time.
Amendments may be needed to conform to State or Federal law passed after adoption. They also may be a need to eliminate or Chapter 1: Introduction
1-23
modify policies that may become obsolete or unrealistic over time due to changed conditions, such as the completion of a task or project, development on a site, or adoption of an ordinance or plan.
AMENDMENTS TO THE GENERAL PLAN
State law limits the number of times a jurisdiction can amend its general plan to generally no more than four times in one year for a mandatory element, although each amendment may include
more than one change. This restriction does not apply to optional general plan elements, or if the amendment is necessary to allow for the development of workforce housing or to comply with a court decision.
ANNUAL REPORT
The California Government Code requires City staff to “provide an annual report to the legislative body on the status of the general plan and progress in its implementation” (Government Code Section 65400(b)). This report must also be submitted to the Governor's Office of Planning and Research (now titled the Office of Land Use and Climate Innovation or ICL) and the Department of Housing and Community Development. It must include an analysis of the progress in meeting the city's share of regional housing needs and local efforts to remove governmental constraints to maintenance, improvement, and development of workforce housing (Government Code Section 65583, 65584).
In addition, any mitigation monitoring and reporting
requirements prescribed by the California Environmental Quality Act (CEQA) identified in the General Plan EIR should be addressed in the annual report because they are closely tied to plan implementation. Finally, the annual report should include a summary of all general plan amendments adopted during the preceding year and an outline of upcoming projects and general plan issues to be addressed in the coming year, along with a work program.
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2 ECONOMIC
DEVELO PMENT
San Pablo is committed to economic development and the
establishment of a long-term framework for employment growth.
In fact, the outcome of other General Plan initiatives is, in many ways, tied to the City’s economic success. The Economic Development Element of the 2035 General Plan Update integrates the policies and actions proposed in the City’s Economic Development Strategy, which was adopted on June 17, 2024, into the General Plan framework. It provides a policy platform for implementing the eight major initiatives of the Economic Development Strategy: enhancing the city’s image through marketing, expanding development capacity, improving
community safety and amenities, developing local workforce talent and entrepreneurship, engaging the community in economic development, promoting health and wellness, collaborating regionally, and taking advantage of fiscal tools and financing opportunities to ensure the fiscal soundness of the City.
2.1 Economic Vision
The City of San Pablo recognizes that a successful economic development plan must be guided by a clear vision, long-range planning and continuous commitment. This vision includes a City government that is receptive to working with business owners and entrepreneurs to facilitate continued expansion of commercial businesses, professional offices, and entertainment uses; flexible land use policies that encourage mixed-use development and promotes a diversity of jobs for all residents; a fiscally healthy City budget that supports the investment of new and maintenance of existing infrastructure; and a close partnership with schools and other institutions that provide skill training and education to match the needs of the local job market.
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2.2 Economy of San Pablo
The City of San Pablo is the 8th most populous city in Contra Costa County and has a population density of approximately two-thirds that of San Francisco.2 The racial and ethnic composition of San Pablo is 15 percent White, 17 percent Asian, 12 percent Black, and 43 percent other. Nearly 57 percent classify themselves as being Hispanic.3 Other economic indicators are presented in Table 2.2-1.
Table 2.2-1 The Economy of San Pablo
Population between 18 and 62 58%
Population with a Bachelor’s degree or higher 15%
Average household size 3.2 persons
Percent of ownership housing 42%
Median Household Income as a percent of Contra
Costa County as a whole
60%
Source: U.S. Census, 2020; American Community Survey, 2022.
THE CURRENT ECONOMY
San Pablo has a diverse, yet limited economy largely due to its small size, as well as being built out. The economy is also limited by its supply of older professional office space and lack of access to a waterfront. The number of employed residents by industry group in 2010 and 2018 is summarized in Table 2.2-2.5.4 The largest and most important economic sectors, in terms of employment size, are ‘Arts, recreation, and other services,’ (a Census category that includes casino employment) and
‘Education, health and social services’ (a category that includes jobs at nearby medical centers and offices and at Contra Costa College in San Pablo). Together, these two sectors account for one third of all employed residents in the city. The major employers include Contra Costa College (about 900 jobs) and the Lytton Casino (about 421 jobs).5 Retail-related jobs represented a substantial share of total employment, at 16 percent, but offer few high quality jobs, such as full-time employment at a living wage or better and providing benefits.
2 US Census, 2020.
3 American Community Survey, 2022.
4 An “employed resident” refers to any adult resident who is currently employed, regardless of the location of the job. The job may be located in San Pablo, or outside of San Pablo. Thus, the number of employed residents is not the same as the number of local jobs.
5 Source: City of San Pablo Comprehensive Annual Financial Report, 2019-2020; Dyett & Bhatia, 2021.
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Table 2.2-2 Number of Employed Residents by Industry Group, 2010 to 2018 Employed Residents by Industry 2010 2018 Jobs Added Percent Change Agriculture, forestry, fishing and hunting, and
mining
0 0 0 0%
Construction 76 138 62 82%
Manufacturing 181 57 -124 -69%
Wholesale trade 187 59 -128 -68%
Retail trade 633 926 293 46%
Transportation and warehousing, and utilities 26 77 51 196% Information 9 5 -4 -44%
Finance and insurance, and real estate and rental
and leasing
166 112 -54 -33%
Professional, scientific, and management, and
administrative and waste management services
153 176 23 15%
Educational services 1,077 1,072 -5 0%
Health care and social services 783 1,343 560 72%
Arts, entertainment, and recreation 596 632 36 6%
Accommodation and food services 416 772 356 86%
Public administration 217 237 20 9%
Other 446 235 -211 -47%
Total 4,966 5,841 875 18%
Source: US Census; California Employment Development Department The Contra Costa College provides educational services and employment opportunities for San Pablo residents. (Photo: Contra Costa College)
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San Pablo General Plan 2035
The City’s Competitive Advantage
To judge the relative strength of each industry in San Pablo, it is informative to compare these industries to data from a larger geographical entity, such as Contra Costa County. Table 2.2-3 presents employment makeup in year 2018 for comparison.
According to the analysis, San Pablo enjoys competitive advantages in the ‘Educational Services’ employment sector and the ‘Arts, Entertainment, and Recreation’ employment sector. The latter employment sector includes jobs relating to the casino industry.
Table 2.2-3 Number of Employed Residents in San Pablo and Contra Costa County, 2018 Industry
City of San Pablo Contra Costa County
Location
Quotient (LQ) Number of
Jobs
Percent of Total Number of
Jobs
Percent of
Total
Agriculture, forestry, fishing and
hunting, and mining
0 0% 1,937 1% 0.0
Construction 138 2% 28,750 8% 0.3
Manufacturing 57 1% 16,776 4% 0.2
Wholesale trade 59 1% 10,591 3% 0.4
Retail trade 926 16% 43,291 11% 1.4
Transportation and warehousing,
and utilities
77 1% 9,142 2% 0.6
Information 5 0% 9,142 2% 0.0
Finance and insurance, and real
estate and rental and leasing
112 2% 30,452 8% 0.2
Professional, scientific, and
management, and administrative
and waste management services
176 3% 59,388 16% 0.2
Educational services 1,072 18% 33,301 9% 2.1
Health care and social services 1,343 23% 69,969 18% 1.3 Arts, entertainment, and
recreation
632 11% 7,223 2% 5.7
Accommodation and food
services
772 13% 34,700 9% 1.5
Public administration 237 4% 14,144 4% 1.1
Other 235 4% 14,262 4% 1.1
Total 5,841 100% 383,068 100%
Source: US Census Bureau Longitudinal Employer-Household Dynamics program, 2018; Dyett & Bhatia, 2021.
The sectors where San Pablo is relatively weak, in terms of employment, are ‘Information’ (a Census category that includes information technology and the high -tech industry), ‘Finance and Insurance, and Real Estate and Rental and Leasing’, and ‘Professional, Scientific, and Management, and Administrative and Waste Management Services’.
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ECONOMIC STRENGTHS AND CHALLENGES
To develop its economy successfully, San Pablo will have to build on its economic strengths, look for opportunities for growth, and address any economic threats facing the City, while also considering more equitable ways for its residents to participate in the local economy . Strategies to skill -up and attract industry that benefits from the inherent multi -lingual capacity of local residents are needed. The following section highlights the challenges facing San Pablo, based on an objective assessment of economic conditions.
Strengths
• Location. San Pablo’s proximity to San Francisco and other major cities hosting globally recognized u niversities and vibrant service and technology -based industries in the San Francisco Bay Area is a highly desirable factor in terms of attracting businesses and jobs. Its location is readily accessible to local and regional markets, financial resources, a large diverse labor force, airports and seaports, major Amazon, USPS and UPS distribution centers and a diverse range of services. It is well positioned along the Interstate 80 corridor with connections to the Bay Bridge to the south and the Carquinez Bridge to the north, and includes multiple commercial corridors, including San Pablo Avenue, San
Pablo Dam Road, 23 rd Street, and Rumrill Boulevard.
Several regional AC Transit lines run through the City and the Richmond BART station is just one mile to the south. The City’s mix of urban and suburban features is also seen as desirable.
• Competitive Land Values. Compared to peer cities such as Emeryville, Pleasant Hill, Hercules, and others, San Pablo’s land is competitively priced. Additionally, there is an availability of vacant or underutilized parcels that can be developed, and dens ification of development is seen
positively in the city .
• Ethnic Diversity. San Pablo’s cultural diversity provides a backdrop for celebrations, festivals, and gives the community a special character. This is an asset that can be used to attract businesses, as well as knowledge workers, and it contributes positively to residents’ quality of life. As the healthcare industry expands, a community offering skilled professionals who make linguistically- and culturally competent care possible is a unique asset, attracting patients and lowering risk s for operators.
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• Proximity to Higher Education. The Contra Costa Community College is located within City borders, and San Pablo is minutes away from other well-known colleges, such as UC Berkeley, Cal State East Bay, and the College of Alameda. The Bay Bridge separates San Pablo from Stanford University, the University of San Francisco and San Francisco State
University.
Located within City borders, Contra Costa College is an asset to economic development. (Photo: Contra Costa College)
Weaknesses
• Low-skilled Workforce. San Pablo’s labor force has traditionally suffered from having the lowest educational attainment and skill certification in the County . While community college and high school matriculation rates had been increasing, post - pandemic, high school graduation rates have suffered. This is reflected by the relatively low percentage of people (1 2 percent) employed in Management and Professional
occupations. In part, the lower education is due to a higher rate of immigrants who settle in San Pablo whose opportunities to attain higher education levels are limited and whose degrees may not be recognized in the United States. This indicates that a sizable proportion of the labor force needs certification opportunities, qualification into the trades, and skills training in order to compete for higher-skill jobs and better wages.
English language development courses are being retoo led to focus on specific industry needs to fast -track the language skills needed in addition to job skills.
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• Low Aggregate Disposable Income. San Pablo’s household income is significantly lower than the County as a whole. The low aggregate income is a barrier to attracting major retailers or other retail or service -related businesses to the area, while also limiting the ability of residents to access wealth-building opportunities such as higher education and homeownership . • Lack of Large Vacant Parcels of Land for Development. As a small, built-up city, large, vacant parcels on which to develop new buildings are not readily available in San Pablo. Because of its small lots and multiple ownerships in the central areas of the city, assemblage of individual parcels of land for coordinated development can be complex, time -consuming, and expensive.
• Lack of Neighborhood Maintenance and Cleanliness . Quality- of-Life factors are determined in large part by the quality of a city’s neighborhoods. In San Pablo, an overall lack of property maintenance, relatively low median household incomes, and low home ownership rates have contributed to deterioration and lack of community pride. Litter and homeless
encampments near major entrances to the city and along key commercial corridors further hurt San Pablo’s image. These conditions also impede the attraction of some businesses. In recent years, the City has focused major efforts on community clean up , anti -dumping campaigns, and increased
maintenance.
Opportunities
• Low-skilled Workforce. San Pablo’s lack of college graduates can turn into an advantage when it comes to attracting employers that require entry-level workers, such as builders, manufacturers, or retailers.
• Benefits from Regional Growth. San Pablo has an opportunity to partner with neighboring cities on business attraction, as there are limi ted development opportunities within the city itself.
New businesses within the region provide more high -paying jobs accessible to San Pablo residents and offer opportunities for spin-off businesses to locate in San Pablo.
• Promoting Infill Development . Mixed-use development is gaining momentum in the local market and can encourage
reinvestment of older commercial properties. This presents an opportunity to create more desirable walkable neighborhoods and attract more businesses and residents in resource -rich areas.
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• Economic Development through C ommunity Base d
Organizations (C BOs). San Pablo hosts a nonprofit called San Pablo Economic Development Corporation (San Pablo EDC)
whose work focuses on the education and training of
workforce, businesses and aspiring homeowners . San Pablo EDC combines multiple funding sources and has an
agreement with the Community College District to find and fund certified training opportunities for residents, including trades pre -apprenticeship. San Pablo EDC also serves as a conduit for businesses approaching the City and for the City to approach businesses to offer to skil l-up the language - diverse workforce in the areas needed for that enterprise to thrive. Further, San Pablo EDC is focused on
intergenerational wealth building through economic
empowerment and homeownership. The City also works
with Lao Family Community Development which is focused
on getting the vulnerable workforce housing-stable and job- ready, and the City works with the College Foundation to fund scholarships , notably for San Pablo residents
transferring to four -year schools.
Threats
• Regional Profile. The City of San Pablo has previously had a poor public image that has improved steadily but still lags in relation to its excellent crime sta tistics as compared to all neighboring cities . This image is primarily due to a historical perception that the area around San Pablo is not safe. While major positive changes in the city’s safety level have occurred over recent decades , the stigma remains. Blighted areas exist in various city neighborhoods, and homelessness is highly visible in some areas . Laws passed during the pandemic inadvertently created an environment in which the nation experienced soaring petty crime rates at grocery, pharmacy and other retail stores, sparking many to shutter their doors in recent years. While these stores have stuck it out in S an Pablo and worked well with the Police Department, t he
perceived lack of public safety may discourage new
businesses and development from locating in San Pablo. • Challenges to Development . New development is often
financially infeasible in San Pablo due to a combination of regulatory requirements, high construction costs, and lower potential commercial and residential rents. Parking is a particular challenge in a fairly built -out city with small parcel sizes where building area needs to be maximized. These
factors can make it difficult to attract developers to construct much-needed housing and revitalize blighted sites . On the plus side, the City has streamlined development reviews in its Chapter 2: Economic Development
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Permit Center and has a reputation for high levels of customer service and expedited review times.
Underutilized lots and distressed commercial buildings along Rumrill Boulevard present a poor image of San Pablo, but they also represent opportunities for redevelopment.
• Population Growth Outpacing Housing Development. Until recently, p opulation growth had outpaced housing
development, but new housing construction had begun to
rebound as of 2019. As in other areas, this surge in development has been challenged by supply chain constraints, hi gh interest rates, and lack of labor. The City has entitled hundreds of new housing units and is waiting for these projects to complete or commence construction.
THE FUTURE ECONOMY: PROJECTED
EMPLOYMENT
Table 2.2-4 presents the future employment projections for the City of San Pablo, in relation to regional trends across Contra Costa County. The projection is based on extrapolating data from the ABAG’s regional 2050 forecast, which is developed using information on Priority Development Areas (PDAs) that are expected to account for 70 percent of future growth in the city. The City of San Pablo is comprised of three PDAs: San Pablo Avenue, 23rd Street, and Rumrill Corridor. These are further described in Part D of Section 3.2 in the Land Use Element.
7 Projections show what is likely to occur if no economic development strategies as proposed in this General Plan are pursued; that is, if the economy is left on its own.
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Table 2.2-4 Projected Number of Employed Residents, 2010 to 2050 SAN PABLO 2000 2010 2020 2030
Percent
Share in
2000
Expected
Percent
Share in
2030
Population 30,215 32,200 33,600 34,950 NA NA
Households 9,051 9,680 10,150 10,620 NA NA
Arts, recreation, and other services 1,977 2,450 2,920 3,410 18.3% 20.5% Construction 1,068 1,350 1,630 1,810 9.9% 10.9%
Educational, health and social services 1,829 2,600 2,780 3,100 16.9% 18.6% Finance, insurance and real estate 595 710 820 970 5.5% 5.8% Information 139 130 170 220 1.3% 1.3%
Manufacturing and wholesale 1,367 1,250 1,400 1,530 12.6% 9.2% Professional and management services 1,230 1,460 1,750 2,010 11.4% 12.1% Public administration 455 530 600 640 4.2% 3.8%
Retail 1,106 1,240 1,450 1,640 10.2% 9.9%
Transportation and warehousing, and
utilities 970 1,120 1,220 1,270 9.0% 7.6%
Other 82 40 40 30 0.8% 0.2%
Total 10,818 12,880 14,780 16,630 100.0% 100.0%
Source: ABAG Employment Projections, 2024; Dyett & Bhatia, 2009.
RECOMMENDED TARGET INDUSTRIES
Based on analysis of recent growth patterns for key local sectors , several industries may be targeted , based on their fit with City strengths, past performance, and future growth potential. These industries are summarized below.
Health Care and Senior Services
The City of San Pablo is developing a growing sector in the areas of health care and senior services that can further be expanded and capitalized upon . The City has a number of advantages. It has multiple smaller medical facilities within City limits, including the West County Health Center, County Behavioral H ealth Center, Contra Costa County WIC Center, Lifelong Brookside, Vale Health Center, A&A Health Services, DaVita Dialysis Centers, and RotaCare West Free Clinic, with larger health facilities, such as Kaiser Permanente and Alta Bate Hospital available in Richmond and Berkeley to the south.
In terms of the growing demand for senior services, the population 65 and older is projected to grow faster than any other age segment in California. According to Census estimates, the population of senior citizens in California is projected to increase by 166 percent Chapter 2: Economic Development
2-11
between 20 10 and 20 60, while total population will only increase by only 30 percent. San Pablo can take advantage of this shift by positioning itself as a regional senior care location.
The City is home to three nursing homes with care facilities (San Pablo Healthcare and Wellness Center, Creekside Healthcare Center, and Vale Healthcare Center) , and several senior living apartment complexes . The City could foster the development of senior care and related medical services, especially acute and specialty clinics, dental offices, pharmacies, medical supply firms, diagnostic labs, medical insurance companies, and other outpatient offices. Senior living facilities providing independent living, assisted living, and memory care can provide state -of-the- art services that will attract residents and adjacent businesses.
While nursing homes and congregate care facilities themselves may not provide a great number of jobs, they attract other businesses related to healthcare and require retail and other services. Additionally, the development of senior facilities may also be eligible for State or Federal subsidies.
In addition, many of the jobs in the healthcare industry require highly skilled workers and can be well paying. These workers will spend a portion of their incomes in the City (on meals and daily goods and services), which will contribute to increased tax revenue, and they may choose to live in San Pablo as well.
Partnerships with Contra Costa College could provide
opportunities to locally train San Pablo residents for careers in the healthcare industry.
Examples of businesses to target: Nursing homes, residential care homes, acute and specialty clinics, dental offices, pharmacies, medical supply firms, diagnostic labs, medical insurance companies, etc.
There will be an increased demand for senior care services in the San Francisco Bay Area in the next few decades due to an aging population.
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San Pablo General Plan 2035
Green Technology
Industries centered around sustainable technologies and renewable energy present a growth opportunity in San Pablo. Solar, wind, e- battery production, and energy transfer and storage are playing a growing role in the energy sector, and can expect to see continued funding and future growth in California. Self-driving cars and trucks are also gaining traction and require new infrastructure for storage, maintenance, and manufacturing. San Pablo has a number of larger formerly industrial parcels that present opportunities for these sectors, as site contamination concerns prevent other types of development. Taking advantage of these sites for assorted green tech uses presents an opportunity to bring new jobs and investment into the City.
Biotechnology
San Pablo is well positioned regionally to take advantage of the Bay Area’s biotech cluster. The city offers close proximity to areas where many biotech workers live, offering a more attractive setting for employers than current clusters in higher cost of living areas.
Additionally, land for biotech and adjacent medical manufacturing uses can be acquired for much less than in competing submarkets, further positioning San Pablo as an attractive location for these types of businesses. These factors can lure businesses such as specialty biopharma manufacturers, durable medical equipment makers, and other semi-industrial uses that provide high-quality jobs and significant tax revenue.
Examples of businesses to target: Specialty biopharmaceutical companies and durable medical equipment (DME) providers in the life sciences area based in Marin County and South San Francisco (with a high-cost operational basis) would be excellent targets, especially those still in their private equity phases or that have recently gone public. The challenge for these companies is that their cost of operation is high. They also have a labor challenge given that their workforce tends to live in and come from the East Bay.
Relocating to the East Bay, where they can find lower rent, better proximity to travel hubs, and strong access to a highly educated and well-trained regional workforce would improve their valuation.
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Hotel and Gaming
San Pablo is well positioned to plan for and encourage the growth of the hospitality and gaming industry to complement existing entertainment activities occurring in and around the Casino.
Careers in the arts and entertainment industry are often low- skilled and lower-paying, which makes them a good match for San Pablo, where only 15% of the population has a bachelor’s degree or higher. San Pablo already has a well-established casino, which serves visitors from the Bay Area and beyond. The City could build on the casino’s presence and add more family-friendly uses, which would draw in a greater variety of visitors and augment the City’s image as an entertainment destination.
Development of hotels and entertainment venues would also provide the City with an additional revenue source in the form of Transient Occupancy Tax. This would also serve to attract additional visitors from outside the immediate region and encourage visitors to the entertainment destinations to spend more time in the City.
Examples of businesses to target: Hotels, business or family motels, bed and breakfast inns, theaters, family-fun or amusement center, cultural centers, indoor sports center, etc.
Education Services and Training
Today, a compelling body of research links education and training to economic development and growth. This research recognizes people as a type of economic asset known as “human capital,” and shows that increased investment in skills and knowledge provides future returns to the local economy through increases in labor productivity and competitiveness. Accordingly, every city eager to develop its economic base should promote the growth of businesses providing education services and training to equip today's and tomorrow's residents with the skills for success. San Pablo is well positioned to build its human capital through the ongoing efforts of the San Pablo EDC and its partners.
Strategically, building human capital makes especially good sense for San Pablo, because the city has a large proportion of children and young adults and a low proportion of people with high school graduation certificates or college degrees. These conditions represent a latent demand for educational services in the form of after-school tutoring providers, job training programs, and art, technical and trade schools. Additionally, schools offering specialized, industry-specific language courses or continuing-education certificates may be popular with adults or new immigrants eager to increase their marketable skills or learn a new language. A concerted effort to target these businesses will produce even greater growth by increasing the education level and career opportunities available to San Pablo residents, thereby 2-14
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raising incomes and setting off a virtuous cycle of economic growth.
Examples of businesses to target: After-school tutoring providers, job training programs, art, technical and trade schools, language schools, continuing education schools, etc.
Language and vocational schools are great businesses to attract to San Pablo because they provide new jobs as well as equip San Pablo residents with new skills (Photo: San Pablo EDC).
THE CITY’S ROLE IN ECONOMIC DEVELOPMENT
The City of San Pablo has taken a proactive approach to economic development. In 2024, the City of San Pablo adopted an Economic Development Strategy (EDS) prepared by the Natelson Dale Group, Inc and providing guided direction to ensuring the stability and growth of the city’s finances and economy. The E DS identified eight key initiatives , summarized in the EDS Action Plan. These initiatives aim to expand economic opportunities for San Pablo’s resident workforce, revitalize and diversify San Pablo’s older commercial and industrial areas, promote expanded opportunities for homeownership, and strengthen the City’s fiscal position.
Furthermore, the San Pablo Economic Development Corporation (EDC) is active in promoting small business growth, career and educational opportunities, and homeownership for residents of the city.
The City intends to better leverage its membership in ad vocacy groups, such as the East Bay E conomic Development Alliance (EBEDA) and Contra Costa Economic Partnership (CCEP). Both of these organizations get involved in county and regional economic development and funding efforts that lend themselves to development a ssistance, grants, etc., for specialized zones and regional efforts, such as the Green Empowerment Zone. The City is located in the Metropolitan Transportation Commission’s
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(MTC’s) Priority Production Area and may be able to access further grant funding to realize or advance some of the goals under this plan.
The following section outlines the guiding and implementing policies for economic development , based on the existing work of the San Pablo EDC and the action items laid out in the Economic Development Strategy . Additional policies related to providing sufficient sites for economic purposes are in the Land Use Element.
2.3 Ensuring Strategic Readiness
Cities operate in an economic context that is always in flux. In particular, local market conditions continue to evolve, and regional and environmental issues are constantly changing. Strategic readiness requires San Pablo to have clear and realistic targets for economic development. These targets should be up - to-date to respond to changing market conditions. As the City gains new insights, its economic strategy must be flexible enough to evolve to respond to new challenges.
GUIDING POLICIES
ED-G-1 Review, assess, and respond to changing
economic conditions.
ED-G-2 Pursue the Major Goals identified in the 2024
Economic Development Strategy, including the
following:
• Expand economic opportunities for San Pablo’s
resident workforce
• Revitalize and diversify San Pablo’s older
commercial and industrial areas
• Promote expanded opportunities for home
ownership
• Strengthen the City’s fiscal position
IMPLEMENTING POLICIES
ED-I-1 Annually monitor economic trends and leading
indicators to identify emerging industries and
new market opportunities, so that City policies
and strategies can be proactive and timed to
market changes.
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ED-I-2 Actively work to implement the focus areas ,
programs, and action steps laid out in the City’s
Economic Development Strategy , including the
following:
Focus Area 1 . Marketing/Image Enhancement.
The City will launch an economic marketing
program to support the priorities laid out in the
EDS.
Focus Area 2: Expanded Development Capacity.
Within San Pablo’s limited remaining land /
development capacity (and opportunities for re -
tenanting/repurposing existing underutilized
buildings and commercial centers), City will focus
its business development efforts on potential
“signature” projects with image -enhancing
characteristics and the likelihood of adding to the
tax base.
Focus Area 3: Community Safety, Improvement,
and Amenities . Through a combination of City
investments and private sector incentives, the City
will pursue a comprehensive improvement
agenda addressing community-based public
safety, issues related to homelessness in a holistic
way, improving cleanliness and visual appeal,
streetscape/gateway improvements, and
facilitating reinvestment in commercial/storefront
properties.
Focus Area 4: Leveraging Local Talent
(Workforce and Entrepreneurial Development ).
Collaborate with local/regional partners to gro w
workforce development for San Pablo residents
and build resources for supporting San Pablo
entrepreneurs.
Focus Area 5: Ongoing Community Engagement
in Economic Development . Formalize processes
for civic and stakeholder engagement around the
topic of economic development , including the use
of surveys, forums, regular communications, and
establishment of a “business ambassador”
program.
Focus Area 6: Health and Wellnes s. Integrate
economic development programming with a
broader focus on community health and wellness.
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Focus Area 7: Regional Collaboration . In addition
to existing partnerships, the City will establish or
reinforce partnerships/consortia focused on the
following topics: Support for persons experiencing
homelessness and related mental health issues;
regional business attraction; education and
workforce development; small busin ess and
entrepreneurial development.
Focus Area 8: Fiscal/Financial Tools and Funding
Opportunities. The City will systematically review
and strengthen key systems, policies, and tools
relating to funding fiscally advantageous projects
and enhancing tax revenues .
ED-I-3 Conduct an Employment Development
Roundtable every two years to discuss
employment training needs, collaboration
opportunities, internship and apprenticeship
opportunities, job and labor trends, and the
educational performance of local schools, to
come up with a list actions and strategies.
The Roundtable will involve City leaders, the San
Pablo Economic Development Corporation , local
business stakeholders, business owners, educators,
and youth. It will also involve regional non -profit
and private economic development or employment
organizations, such as the East Bay Leadership
Council, East Bay E conomic Development
Alliance, and the Contra Costa Community
College District.
2.4 Sectoral Targeting
Sectorial targeting actively promotes economic development by bringing to San Pablo industries or businesses that would benefit the community the most. Based on a survey of existing conditions , the industries that are most compatible with San Pablo are those whose growth has the greatest potential for job and wage increases, provide training to workers, and whose development is compatible with the City’s vision. Examples include Healthcare and Senior Services, Green Tech, Biotechnology, Hotel and Gaming, and Education Services and Training.
San Pablo General Plan 2035
2-18
GUIDING POLICIES
ED-G-3 Recruit community-serving retail, neighborhood-
serving commercial, healthcare, and entertainment
business and activities that meet the needs of
residents.
IMPLEMENTING POLICIES
ED-I-4 Attract new businesses, with a focus on those
that:
• can realistically locate within San Pablo’s limited
locational opportunities ;
• would see our location as advantageous to their
business;
• generate net fiscal benefits to the City through
increased tax revenues;
• provide opportunities for skill training;
• create higher-paying and/or higher-quality jobs
for local residents;
• complement or augment existing goods and
services in San Pablo;
• create minimal negative impact on the
environment; and
• require minimal public investment.
ED-I-5 Create a list of incentives as part of a package to approach a “target list” of businesses in
relocating to San Pablo.
Potential incentives may include labor support
services through San Pablo EDC, expedited permit
review and approval, and floor area bonuses.
2.5 Cultivating and Attracting Skilled,
Educated, and Well-Trained Work
Force
Workforce development is a mid- to long-term economic
development strategy because it focuses on cultivating a supply of Chapter 2: Economic Development
2-19
trained workers to attract new businesses. The City can take an active role in improving its supply of skilled labor through encouraging job training, workforce development, and life-long learning. This objective includes attracting non-resident professionals with local jobs to move to San Pablo. This can be accomplished through policies such as ensuring there are enough housing choices for professionals and their families, partnering with local schools to improve school quality, and ensuring there are enough retail, entertainment, and recreation facilities that cater to families.8
San Pablo EDC encourages on-the-job training hires which reimburse businesses for investment in local workforce. EDC helps local residents get pre-apprenticeship training and access to adult education to prepare for pre-apprenticeship and apprenticeship programs. In parallel, it is essential for the City to encourage local businesses to hire locally, making use of web and social media channels. If a business thrives, it hires more people and pays them better, generating a virtuous cycle.
San Pablo EDC and the City work in tandem to equip local residents with the skills needed to succeed in the job market and to encourage San Pablo businesses to hire qualified candidates locally.
8 Most of these issues are addressed in other General Plan elements. For example, ensuring enough park and recreation facilities is a goal in the Parks, Schools, Community Facilities, and Utilities Element, while ensuring housing diversity is a goal in the Housing Element.
San Pablo General Plan 2035
2-20
GUIDING POLICIES
ED-G-4 Provide employers with access to a skilled, educated, and well-trained resident work force.
ED-G-5 Attract professionals and skilled workers with local jobs to live in San Pablo.
IMPLEMENTING POLICIES
ED-I-6 Create a partnership between Contra Costa
College and the business community through
the two-year Employment Development
Roundtable. This will enable the College to
offer training programs tailored to local
business needs, including supervisory, teacher
certification, healthcare, and technology
training.
The City will promote student internships with
local businesses to enhance education. To stay
competitive, San Pablo must provide quality
education. The College has transfer agreements
with several universities and the highest UC
transfer rate among similar institutions. The City
should also co-sponsor the College’s annual “Career
Fair” to engage business leaders on job
opportunities and training needs.
ED-I-7 Connect local businesses, through the San
Pablo EDC, to mentoring opportunities, paid
internships, and other work -based learning
opportunities for work-aged youth.
ED-I-8 Provide a diversity of housing types including
townhomes, studios, multifamily apartments
and single -family homes at a range of prices
and affordability levels to meet the housing
needs of young er professionals and new
families wishing to relocate to San Pablo.
Other housing related policies and programs are
included in the Housing Element.
Chapter 2: Economic Development
2-21
2.6 Improving the Business Climate
A welcoming business climate allows businesses to conduct their affairs expeditiously while accessing high quality services and customers at reasonable costs. San Pablo should continue to facilitate and reduce the cost of doing businesses through policies that expedite permitting and other application procedures, reduce barriers to investment, and implement local assistance programs as needed.
The City is committed to providing
high-quality customer service.
GUIDING POLICIES
ED-G-6 Preserve and enhance qualities that make San Pablo an ideal place to do business.
IMPLEMENTING POLICIES
ED-I-9 Continue to offer high -quality customer
service for all business needs.
The City will set goals for City staff response times
and review existing permit and business license
processes to remove duplicative and unnecessary
paperwork, through on -line programs and other
approaches.
ED-I-10 Establish a list of “shovel-ready” development
sites in consultation with property owners and
provide the list to interested developers and
businesses seeking sites in the city.
This list should be updated regularly and
distributed to the EDC, employment recruiters, the
Real Estate Board, and local commercial bankers and
developers, as well as posted on the City’s website.
ED-I-11 Amend the Zoning Ordinance to remove
unnecessarily burdensome regulations that
can hinder development , and provide
authority for fee waivers for targeted
businesses locating in San Pablo.
San Pablo General Plan 2035
2-22
ED-I-12 Create a one-stop web portal for economic
development.
The website may include:
• Information on the permitting and licensing
process and including a list of available
business assistance programs.
• A secure portal for online applications and
a searchable GIS inventory of available
sites;
• A directory of San Pablo firms and the
products or services they provide;
• A “Testimonial Page” by local businesses
owners and City officials to encourage new
businesses to locate in San Pablo; and
• Links to collaborative websites (including
financial/loan resources), and links to
websites of businesses and service
providers within the city.
2.7 Working Regionally
The current operating environment for cities is increasingly being impacted by the need to create cooperative processes and solutions to problems region -wide. Because cities do not exist by themselves but are always in close proximity to others, many issues are best approached with a “ think globally, plan regionally, act locally” mindset. This is especially so for issues that require cooperation with other jurisdictions such as traffic flow, unemployment, crime prevention, and air quality.
In order to be effective, economic development policies in San Pablo must be planned and implemented with the region in mind. Good practices include keeping communication lines open with peer cities, non -profits and other agencies and participating in regional economic alliances to ensure that the City’s needs and interests are adequately represented.
•
A future one-stop web portal will improve the
ease of the application and permit process.
Chapter 2: Economic Development
2-23
GUIDING POLICIES
ED-G-7 Work cooperatively with other agencies and cities to achieve regional development goals.
IMPLEMENTING POLICIES
ED-I-13 Work with regional economic development
organizations and surrounding cities to foster
the economic health of the area.
The City is integrally connected to the rest of the
Bay Area. Many issues facing the region affect all
communities in it, and can be solved only through
regional dialogue and cooperation.
2.8 Marketing and Promotion
Marketing a city is more than just a mere promotion of place.
Effective Marketing and Promotion defines San Pablo’s image and increase s its visibility to potential investors and future residents. The City should work to create an improved and more effective print and digital presence through various media, such as its websites, social media, news stories, and video.
Additionally, the City should maximize opportunities to promote itself, in partnership with the EDC, the E ast Bay Economic Development Alliance and other economic
development partners.
GUIDING POLICIES
ED-G-8 Promote a positive image of San Pablo as a
desirable place to live, shop, visit and do business.
IMPLEMENTING POLICIES
ED-I-14 Work with owners, managers, and employers in
the shopping, entertainment, arts, dining, hotel,
recreation, and nightlife sectors through the San
Pablo EDC to explore cooperative ways of
marketing and doing business in San Pablo.
San Pablo General Plan 2035
2-24
ED-I-15 Promote regionally recognized events as a
means of fostering a positive image of the
City as a place to visit, reside, and conduct
business.
Examples of community events that could draw
visitors to the city include the annual Fiestas
Patrias, Cinco de May o, and Fourth of July
celebrations, as well as other city celebrations,
festivals, and promotional sales.
ED-I-16 Establish San Pablo as a regional destination
for shopping, entertainment, and medical
care.
ED-I-17 Promote activities associated with the Lytton Casino, the nearby hotel , and other
entertainment activities to be developed in
the Mixed-Use Center and Entertainment
District area.
• Provide clear signage on roads leading to
points-of-interests such as the Casino and
nearby shopping centers ;
• Provide visitor information on the City’s
website; and
• Encourage the Casino and major retailers to
invest their marketing in the most up -to-
date methods of advertising to reach their
desired audienc es.
2.9 Supporting Local Businesses
To retain local businesses, San Pablo needs to provide a supportive environment for the se businesses to grow and develop. Understanding their needs and providing resources and services to the business community is an important aspect of a comprehensive economic development program.
Chapter 2: Economic Development
2-25
GUIDING POLICIES
ED-G-9 Support local businesses and foster a positive
relationship between the business community and
the City government.
IMPLEMENTING POLICIES
ED-I-18 Encourage the formation or re constitution of business organizations to represent businesses
along 23rd Street , North San Pablo Avenue,
South San Pablo Avenue, and Rumrill
Boulevard.
ED-I-19 Support business retention by promoting the
San Pablo EDC’s Nano Revolving Loan Fund
(RLF) program and through finding new
opportunities to provide free or low -barrier
funding for local businesses.
ED-I-20 Support community efforts to establish a
Farmer’s Marketplace or Food Truck event in
the center of San Pablo.
This could be established at the corner of 23rd Street
and Brookside Drive or at a future development site.
The Farmer’s Market/Food Truck event could be a
weekly, open-to-air gathering of stalls offering food,
clothing, and crafts from local producers/artisans,
along with community services for people who need
them. It would have a festive atmosphere, possibly
with live music.
ED-I-21 Strive for a balanced mix of local, regional, and national retailers that offer a diversity of product
and pricing choices for residents.
The City will locate regional-oriented retail uses so
they will not adversely affect residential
neighborhoods.
ED-I-22 Undertake strategic initiatives to attract new
retail and commercial development:
• Promote catalyst projects at key locations to
stimulate private investment;
San Pablo General Plan 2035
2-26
• Encourage quality retail and restaurant
uses to locate near existing successes; and
• Build on synergies that could occur
between complementary businesses.
The geographic concentration of certain types of
uses can bring about positive spin-offs to
surrounding businesses. For example,
concentrating quality retail and restaurant uses
can help increase convenience and create an
identifiable “go-to” place in the mind of shoppers
and diners . Locating additional medical offices
near the current hub of health services at San
Pablo Avenue and Vale Road would further
expand this healthcare industry cluster towards a
critical mass.
2.10 Maintaining Fiscal Health
Economic and other initiatives will have fiscal consequences for San Pablo. The City must seek ways to maximize the collection of existing revenue and adopt new revenue sources, as needed, to continue providing quality services and ensure revenue and expenditure achieves a healthy balance.
GUIDING POLICIES
ED-G-10 Foster a fiscally healthy City government and
enlarge/diversify the City’s revenue base as
necessary to sustain and support the community.
IMPLEMENTING POLICIES
ED-I-23 Require fiscal impact analyses for major
development proposals requiring a General
Plan Amendment to assess citywide impacts
and to identify any burden such projects
might create for the City.
ED-I-24 Continue to identify, pursue, and capture
Federal, State, and other grants for economic
development, marketing , and incentives to
recruit new businesses.
Chapter 2: Economic Development
2-27
2.11 Improving a City’s Image
A clean and safe environment can create a favorable
impression and instill confidence for businesses and
investors. Conversely, a lack of cleanliness and public safety concerns may cause businesses to question San Pablo as an investment destination. The City must continue to work to assure the business community that it is a desirable place in which to work, live and do business. Graffiti abatement, trash removal, streetscape and landscape improvements, and
business upgrade programs are a few examples of initiatives that can contribute to a better city image.
GUIDING POLICIES
ED-G-11 Support and contribute to a clean, attractive, and safe environment for residents, business owners,
employees, visitors, and shoppers.
IMPLEMENTING POLICIES
ED-I-25 Adopt a city abatement program with a
goal to assist property owners with graffiti
removal, installation of more security
lights, and litter abatement/dumping
cleanup.
Graffiti and litter create the impression that
crime exists within the community and
negatively affects economic development
opportunities. A citywide abatement program
can go a long way in improving the City’s image.
The City has made tremendous strides in this
direction through the Police Department’s
Priority Oriented Policing (POP) and the
Public Works Department ’s San Pablo Shines
program.
San Pablo General Plan 2035
2-28
ED-I-26 Continue to support efforts to improve and
upgrade older businesses along San Pablo
Avenue, 23rd Street, and Rumrill Boulevard.
Loss of Redevelopment Authorities in California
has eliminated an important source of
beautification funds. The City and EDC should
work together to identify support programs and
resources to assist businesses, through such
programs as Business Improvement Districts,
Opportunity Zones, etc.
ED-I-27 Continue to promote streetscape
improvements in commercial areas, such as
along San Pablo Avenue, Rumrill Boulevard
and 23 rd in coordination with transportation
improvement projects.
Major streetscape improvements have recently been
installed along San Pablo Avenue and Rumrill
Boulevard as a parr of grant -funded Complete
Street improvements. The City should continue to
seek grant funding to install these improvements
along the major commercial corridors of San Pablo.
3 LAND USE & PHYSICAL
DESIGN
The purpose of the Land Use and Physical Design Element of the General Plan is to enhance community character, improve how the city looks, and to present a framework to guide future land use decisions and development approved in San Pablo. The element forms the core of the General Plan and its policies articulate the community’s land use and growth priorities through 203 5, including the Land Use Diagram, land use classifications, standards for density/intensity, and limitations on development.
Policies focus on Urban Form , Community Design , Residential Neighborhoods, Priority Development Areas, and Commercial, Entertainment, and Industrial Uses . In addition, San Pablo Dam Road, a special planning subare a is addressed at the end of the chapter. Policies help define San Pablo’s physical development and reinforce its commitment to balancing land use requirements with community needs .
3.1 Background and Context
EXISTING LAND USE PATTERN
The City of San Pablo is one of the smallest cities in Contra Costa County with a Planning Area of only 2.8 square miles. Despite its size, San Pablo is highly urbanized and offers a full range of services and land uses that one would expect from a much larger city.
Geographically, the city is divided into two parts—a western larger section and an eastern smaller section —separated by Interstate 80.
The city’s more active areas lie at its center, along the retail and commercial corridors of San Pablo Avenue and 23rd Street.
Surrounding these corridors are residential neighborhoods and San Pablo General Plan 2035
3-2
schools. Neighborhoods include the Old Town neighborhood located in the southwestern part of the city; Rumrill
neighborhood situated roughly between Brookside Drive and Broadway Avenue to the west of Contra Costa College;
Bayview neighborhood in the north of the city; El Portal neighborhood between th e Contra Costa College campus and Road 20; the Rollingwood neighborhood adjacent to El Portal Drive; the Hillside neighborhood east of San Pablo Dam Road; and Central neighborhood on both sides of San Pablo Avenue roughly from McBride Avenue to Church Lane. The
neighborhoods are defined by roads, natural features, time period of development , and pattern of development .
In general, i ndustrial and service commercial land uses are located in the western part of the city , along Giant Road and to a lesser degree along Rumrill Boulevard . Despite being planned for industrial uses, industrial activity not highly prevalent and is intermixed with other uses. Today, the area is occupied by a mix of storage facilities, automotive businesses, residential uses, and wholesalers.
Due to the city’s urban ized nature and small size , open space and parkland are limited in San Pablo. Davis Park is the largest public park at 11.6 acres. Other smaller parks are scattered across the city, close to residential neighborhoods. Other recreational uses include Rumrill Sports Park along Rumrill and the planned McNeil Park adjacent to Contra Costa College on Moraga Road.
Single-family housing is the most common type of land use in San Pablo.
3-3
Chapter 3: Land Use & Physical Design
On a clear day, the city and San Pablo Bay beyond the city can be seen from the hills.
LAND USE CHARACTERISTICS
The existing land use pattern is shown in Figure 3-1. San Pablo is a largely built out city with relatively little vacant land, as shown on Table 3.1-1. Residential uses account for 45 percent of land within the City limit, predominantly in single -family residential neighborhoods. Commercial uses are primaril y concentrated along major transportation corridors - San Pablo Avenue, San Pablo Dam Road, 23rd Street and Rumrill Boulevard, comprising almost 10 percent of land within the City limit. Public and Inst itutional uses account for about 11 percent of land, including, schools, churches, government facilities, and Contra Costa College. Office uses account for less one percent of land in San Pablo and parks and open spaces account for about four percent .
3-4
San Pablo General Plan 2035
City Limits Sphere of Influence Total
Land Use
Acreage
Percentage
Acreage
Percentage
Total
Acres
Percent of
Total
Residential
Single-Family Residential 594.5 35.7% 151.6 66.5% 746.2 39.4% Multi-Family Residential 132.4 7.9% 2.4 1.0% 125 7.1%
Mobile Homes 23.2 1.4% - - 111 1.2%
Residential Subtotal 750.1 45% 154.0 67.5% 904.2 37.7%
Commercial
Hotel, Motel, Lodging Commercial 4.0 0.2% - - 4.0 0.2%
Service Station 3.9 0.2% - - 3.9 0.2%
General Commercial 140.0 8.4% - - 140.0 8.4%
Office 13.6 0.8% - - 13.6 0.8%
Mixed Use 3.5 0.2% - - 3.5 0.2%
Commercial/Office Subtotal 165.0 9.8% - - 165.0 9.8%
Industrial
Light Industrial 18.6 1.1% - - 19.5 1.2%
General Industrial 19.6 1.2% - - 19.6 1.2%
Industrial Subtotal 39.1 2.4% - - 39.1 2.4%
Public/ Institutional
Church/Religious Facility 15.4 0.9% 0.2 0.1% 15.6 0.8%
Public/Institutional 44.5 2.7% 2.0 0.9% 46.5 2.5%
School/Educational Facility 116.5 7.0% - - 116.5 6.1%
Hospital 3.8 0.2% - - 3.8 0.2%
Assisted Living/Skilled Nursing
Facility/ Residential Care
7.6 0.5% - - 7.6 0.4%
Public/ Institutional Subtotal 187.9 11.3% 2.2 1.0% 190.1 10.0% Other
Cemetery/Mortuary 51.5 3.1% - - 51.5 2.7%
Open Space/ Natural Areas 33.7 2.0% - - 33.7 1.8%
Parks/Recreation 29.0 1.8% - - 28.1 1.5%
Vacant 31.2 1.9% 10.7 4.7 41.9 2.2%
Vacant-Public 5.7 0.3% 0.1 0.1 5.8 0.3%
Roads/Row/Transportation/Other 374.8 22.5% 61.0 26.8 435.7 23.0% Other Subtotal 524.9 31.5% 71.8 31.6% 596.7 31.5%
TOTAL 1,667.0 100% 228.0 100% 1,895.0 100%
Note: Due to rounding, subtotals may not equal individual row counts
Source: Contra Costa County,2008; City of San Pablo, 2009; Dyett & Bhatia, 2009; updated by City of San Pablo, 2025 Table 3.1-1 Existing Land Use
§¨¦80
City of
Richmond
City of
Richmond
21ST ST
11TH ST
SAN PABLO AVE
17TH ST
VALE RD
DOVER AVE
20TH ST
STANTON AVE
PINE AVE
MINER AVE
19TH ST
16TH ST
15TH ST
AMADOR ST
RIVERS ST
SUTTER AVE
EMERIC AVE
12TH ST
14TH ST
HILLCREST RD
ROLLINGWOOD DR
13TH ST
SANFORD AVE
LAKE ST
RIDGE RD
CALIFORNIA AVE
22ND ST
18TH ST
BUSH AVE
JOHN AVE
WILLOW RD
ALPINE RD
BROOK WAY
PALMER AVE
TYLER ST
ESPANOLA CT
VAN NESS ST
POWELL ST
ARUNDEL WAY
DEVON WAY
MARIN AVE
MASON ST
WILCOX AVE
STANDARD ST
POST AVE
CHEVY WAY
ALFREDA BLVD
STONE ST
BAYO VISTA AVE
KELLEY AVE
FORDHAM ST
GREENWOOD DR
MANOR DR
YUBA AVE
MANCHESTER AVE
PULLMAN ST
FOLSOM AVE
MISSION AVE
AVON LN
VILLA DR
MISSION BELL DR
MACARTHUR AVE
MORROW DR
BEAU RIVAGE
BOWHILL LN
DOUGLAS ST
MIFLIN AVE
TRENTON BLVD
BONITA RD
MERRITT AVE
GLENLOCK ST
DEL CAMINO DR
FILLMORE ST
PABLO VISTA AVE
LOVEGROVE AVE
GLENN AVE
COLIN ST
ACAPULCO DR
MARELIA CT
BANCROFT LN
MONTOYA AVE
VENTURA AVE
ABELLA CIR
CLARE ST
JOEL CT
GERALD AVE
EVENS AVE
MANZANILLA DR
CARLFIELD ST
CORTE ST
OHARE AVE
CONTRA COSTA AVE
CASINO AVE
RUMRILL RD
WYMAN ST
RIVERSIDE AVE
REGINA AVE
BARRANCA ST
HUMBOLDT ST
E VICTORIA CT
SHASTA AVE
HARBORVIEW AVE
CLEMENT AVE
CONNECTICUT AVE
CHATTLETON LN
UNIVERSITY AVE
BARBARA LN
KIRK LN
JEAN CT
MADRONE WAY
WESTGATE CIR
W VICTORIA CT
FRIEDA CT
BROOKSIDE AVE
MONTE BUENA ST
DODSON ST
JUDITH CT
WANLASS AVE
DRAKE WAY
LARCHMONT LN
18TH ST
19TH ST
20TH ST19TH ST
BUSH AVE
15TH ST
15TH ST
21ST ST
18TH ST
SHASTA AVE
GLENN AVE
17TH ST
MERRITT AVE
RIVERSIDE AVE
14TH ST
18TH ST
DOVER AVE
19TH ST
22ND ST
MASON ST
15TH ST
16TH ST
17TH ST
POST AVE
LAKE ST
20TH ST
21ST ST
RIVERS ST
YUBA AVE
19TH ST
22ND ST
16TH ST
17TH ST
MINER AVE
ROSE ARBOR A VE
Bayview A ve
BOLDUC CT
CAPITO
LH
ILL AVE
W ESTVIEW
PL
N
ARLINGTONBLVD
H
ILLCREST
RD
MI
FFIN
AVE
EL PORTAL DR SAN PABLO DAM RD
ROAD 20
ROAD 20
BROOKSIDE DR
MARKET AVE
MARKET ST CHURCH LN
CHURCH LN
23RD ST
VALENCIA WAY
BROADWAY
ROAD 20 RUMRILL BLVD
CHESLEY AVE
RICHMOND PKWY
RICHMOND PKWY
City
Hall
Contra Costa
College
John
Herbert
Davis Park
San Pablo
Lytton
Casino
St. Joseph
Cemetery &
Funeral Center
Wanlass
Park
Rheem Creek
San Pablo Creek
Wildcat Creek
San Pablo Creek
Wildcat Cr eek
San Pablo Creek
BURLINGTON NORTHERN SANTA FE RR
UNION PACIFIC RR
SOURCE: City of San Pablo, 2025; Contra Costa County GIS, 2025; Dyett & Bhatia, 2025
0 0.2 0.40.1
Miles
Single Family Residential
Multi Family Residential
Mobile Homes
Service Station
Hotel, Motel, Lodging Commercial
General Commercial
Mixed Use
Office
Light Industrial
General Industrial
Assisted Living/Skilled Nursing Facility
Public/Institutional
School/Educational Facility
Hospital
Church/Religious Facility
Cemetery/Mortuary
Parks/Recreation
Open Space/Natural Areas
Vacant Land
Existing Land Use
J:\GISData\581_SanPablo_GP\GIS\Projects\GeneralPlan\Land Use Element Maps\Fig 3-1 Existing Land Use.mxd Figure 3-1:
City Limits
Sphere of Influence
Major Roads
Minor Roads
Railroads
San Pablo General Plan 2035
3-6
RECENT DEVELOPMENT
Since 2010, major development projects in San Pablo have primarily been concentrated within the San Pablo Avenue Priority
Development Area. These include Alvarado Gardens, a 100 -unit affordable housing project at the old City Hall location on San Pablo Avenue and Church Street; Chattleton Place, which involves 20 for - sale townhomes with 8 accessory dwelling units; and the new Police Headquarters and Regional Training Center on Gateway Avenue. A 54-unit supportive housing project was constructed on El Portal Drive near Contra Costa College in 2024, as well single -family housing primarily in neighborhoods in the southwest of the city. The City has also approved several affordable housing projects, although in a climate of rising construction costs and interest rates, the financial feasibility of affordable housing remains challenging.
3.2 General Plan Land Use Diagram
LAND USE FRAMEWORK
The land use framework embodies the Community’s vision for the future development pattern in the city and is designed to reflect the planning themes presented in Chapter 1. These include:
• Economic Development and Jobs. Together with the regional commercial and neighborhood commercial land use
classifications, new mixed use designations provide
development opportunities for small businesses as well as large commercial, office , and light industrial uses to flourish. • Mixed-Use Development. A major initiative in the General Plan is to introduce the concept of “mixed -use” to San Pablo. This is a land use that allows more than one single use to occur, either on the same lot (such as residential units above a grocery store), or on lots that are next to each other along key corridors or in districts within the city . Mixed use developments bring jobs close to places where people live. In turn, this increases the convenience of shopping or going to work and reduces the need for automobiles.
3-7
Chapter 3: Land Use & Physical Design
• Enhanced Neighborhoods and Pedestrian-Oriented Design. Policies are written with an eye toward promoting walkable
neighborhoods. New developments along the city’s
transportation corridors will accommodate a diverse range of housing types and be designed with pedestrian -oriented circulation and community -centered spaces.
• More Parks and Open Space. Responding to community
feedback and parks and open space standards, a major goal of the Plan is to increase the amount of park and recreation area in the city. The Plan proposes to add seven potential
generalized park locations and create a network of greenways so future residents can enjoy parks and open spaces within walking distance of their homes.
• A Complete Roadway System. The land uses presented on the Land Use Diagram are structured around the proposed
roadway network, and the two components are interrelated.
The types, location, capacity, and multi -modal use of these roadways are presented in Chapter 4: Circulation.
• A Range of Commercial and Retail Opportunities. The General Plan provides for the full range of commercial, retail, and workplace uses needed for the future population and local economy. Regionally -oriented establishments are placed on major roadway corridors; while neighborhood-oriented uses are placed within planned communities and neighborhoods.
THE LAND USE DIAGRAM
The General Plan Land Use Diagram (Figure 3-2) depicts the desired ultimate land use pattern for the City of San Pablo. The diagram is a graphic representation of land use classifications and locations, and should be used in conjunction with policies established in the Plan.
The proposed general locations, distribution, and extent of land uses show the vision of development at buildout in 2035 and beyond. The Land Use Diagram includes a legend that shows land use categories whose densities and allowable uses are specified in the General Plan Land Use Classification section below. The Diagram is not parcel - specific, and uses on sites less than one acre in size are generally not depicted.
Vacant and underused parcels such as those
along Rumrill Boulevard will be gradually
redeveloped with infill projects.
Medium to high density multifamily housing has
been built along main roads such as San Pablo
Avenue since the early 1990s.
! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! ! §¨¦80
City of
Richmond
City of
Richmond
21ST ST
11TH ST
SAN PABLO AVE
17TH ST
VALE RD
DOVER AVE
20TH ST
STANTON AVE
PINE AVE
MINER AVE
19TH ST
16TH ST
15TH ST
AMADOR ST
RIVERS ST
SUTTER AVE
EMERIC AVE
12TH ST
14TH ST
HILLCREST RD
ROLLINGWOOD DR
13TH ST
SANFORD AVE
LAKE ST
RIDGE RD
CALIFORNIA AVE
22ND ST
18TH ST
BUSH AVE
JOHN AVE
WILLOW RD
ALPINE RD
BROOK WAY
PALMER AVE
TYLER ST
ESPANOLA CT
VAN NESS ST
POWELL ST
ARUNDEL WAY
DEVON WAY
MARIN AVE
MASON ST
WILCOX AVE
STANDARD ST
POST AVE
CHEVY WAY
ALFREDA BLVD
STONE ST
BAYO VISTA AVE
KELLEY AVE
FORDHAM ST
GREENWOOD DR
MANOR DR
YUBA AVE
MANCHESTER AVE
PULLMAN ST
FOLSOM AVE
MISSION AVE
AVON LN
VILLA DR
MISSION BELL DR
MACARTHUR AVE
MORROW DR
BEAU RIVAGE
BOWHILL LN
DOUGLAS ST
MIFLIN AVE
TRENTON BLVD
BONITA RD
MERRITT AVE
GLENLOCK ST
DEL CAMINO DR
FILLMORE ST
PABLO VISTA AVE
LOVEGROVE AVE
GLENN AVE
COLIN ST
ACAPULCO DR
MARELIA CT
BANCROFT LN
MONTOYA AVE
VENTURA AVE
ABELLA CIR
CLARE ST
JOEL CT
GERALD AVE
EVENS AVE
MANZANILLA DR
CARLFIELD ST
CORTE ST
OHARE AVE
CONTRA COSTA AVE
CASINO AVE
RUMRILL RD
WYMAN ST
RIVERSIDE AVE
REGINA AVE
BARRANCA ST
HUMBOLDT ST
E VICTORIA CT
SHASTA AVE
HARBORVIEW AVE
CLEMENT AVE
CONNECTICUT AVE
CHATTLETON LN
UNIVERSITY AVE
BARBARA LN
KIRK LN
JEAN CT
MADRONE WAY
WESTGATE CIR
W VICTORIA CT
FRIEDA CT
BROOKSIDE AVE
MONTE BUENA ST
DODSON ST
JUDITH CT
WANLASS AVE
DRAKE WAY
LARCHMONT LN
18TH ST
19TH ST
20TH ST19TH ST
BUSH AVE
15TH ST
15TH ST
21ST ST
18TH ST
SHASTA AVE
GLENN AVE
17TH ST
MERRITT AVE
RIVERSIDE AVE
14TH ST
18TH ST
DOVER AVE
19TH ST
22ND ST
MASON ST
15TH ST
16TH ST
17TH ST
POST AVE
LAKE ST
20TH ST
21ST ST
RIVERS ST
YUBA AVE
19TH ST
22ND ST
16TH ST
17TH ST
MINER AVE
ROSE ARBOR A VE
Bayview A ve
BOLDUC CT
CAPITO
LH
ILL AVE
W ESTVIEW
PL
N
ARLINGTONBLVD
H
ILLCREST
RD
MI
FFIN
AVE
EL PORTAL DR SAN PABLO DAM RD
ROAD 20
ROAD 20
BROOKSIDE DR
MARKET AVE
MARKET ST CHURCH LN
CHURCH LN
23RD ST
VALENCIA WAY
BROADWAY
ROAD 20 RUMRILL BLVD
CHESLEY AVE
RICHMOND PKWY
RICHMOND PKWY
City
Hall
Contra Costa
College
John
Herbert
Davis Park
San Pablo
Lytton
Casino
St. Joseph
Cemetery &
Funeral Center
Wanlass
Park
Rheem Creek
San Pablo Creek
Wildcat Creek
San Pablo Creek
Wildcat Cr eek
San Pablo Creek
BURLINGTON NORTHERN SANTA FE RR
UNION PACIFIC RR
SOURCE: City of San Pablo, 2025; Contra Costa County GIS, 2025; Dyett & Bhatia, 2025
0 0.2 0.40.1
Miles
Residential
Low Density Residential
Medium Density Residential
High Density Residential
Mixed Use
Mixed Use Center North
Mixed Use Center South
Mixed Use Center West
Residential Mixed Use
Commercial Mixed Use
Industrial Mixed Use
Employment Mixed Use
Planned Development
Commercial
Neighborhood Commercial
Regional Commercial
Other
Parks/Recreation
Public/Institutional
! ! ! ! ! !
! ! ! ! ! !
! ! ! ! ! !
Air Quality Health Risk Overlay Zone
General Plan Land Use
J:\GISData\581_SanPablo_GP\GIS\Projects\GeneralPlan\Land Use Element Maps\Fig 3-2 General Plan Land Use.mxd Figure 3-2:
City Limits
Sphere of Influence
Major Roads
Minor Roads
Railroads
3-9
Chapter 3: Land Use & Physical Design
DENSITY/INTENSITY STANDARDS
The General Plan establishes density/intensity standards for each type of land use. The purpose of the density/intensity standards is to indicate how much development is allowed or recommended on a single plot of land. For residential uses, the density/intensity standards are expressed as the number of housing units per gross acre. For non -residential uses, a measure known as Floor Area Ratio (FAR) is specified. In design terms, FAR is defined as the permitted ratio of gross floor area to site area. It is a measure of building bulk that controls both visual prominence and tr ip generation. When FAR is specified for a residential and non - residential mixed- use classification in this Plan, the FAR includes the amount of non-residential use only.
The density (housing units per acre) and intensity (FAR) standards specified in this Plan are for gross developable land (that is, including rights -of-way that may need to be dedicated to the City). The reader should note that recommended
density/intensity standards serve as a guide only, and do not imply that development projects must be appro ved at the intensity specified for each use. Additionally, zoning
regulations consistent with General Plan policies and/or site conditions may reduce development potential within the stated ranges.
Residential neighborhoods are a fundamental part of the urban fabric of San Pablo and the General Plan seeks to enhance neighborhood quality of life. Single -family neighborhoods in the older parts of San Pablo west of I -80 are generally characterized by sm aller lots sizes and those in the newer and hillier portions of the City are larger. The standard
recommended minimum lot size is 5,000 square feet (6,000 square feet for a corner lot), but a lower minimum lot size of 2,500 square feet is recommended for t he older parts of San Pablo. Establishing a smaller minimum lot size would help to enhance conformity with existing development patterns, allow improved redevelopment and infill potential and help to make housing prices more affordable.
Residential density in single -family neighborhoods in San Pablo ranges from 1 to 16 units per gross acre, with typical density at approximately 12 units per net acre. Densities are lowest in eastern and northern neighborhoods, with higher average densities in the older parts of the city where parcels are smaller.
San Pablo General Plan 2035
3-10
San Pablo includes three Priority Development Areas (PDAs) (Figure 3-3 Priority Development Areas in San Pablo ), which are regionally targeted transit-rich areas that are planned for a higher intensity of residential and employment uses and have a strong potential for transit-oriented development. These PDAs include San Pablo Avenue, 23rd Street, and Rumrill Boulevard. Preparation of special or area plans for PDAs are encouraged to facilitate intensification of uses. A Specific Plan was prepared for San Pablo Avenue in 2011 and a Corridor Plan was completed for Rumrill Boulevard in 2025 and is included as a special Element of this plan (see Appendix A) . As described in more detail below, t he 23rd Street Specific Plan is envisioned for repeal and replacement with objective zoning standards following adoption of this General Plan.
LAND USE CLASSIFICATION
The Land Use Diagram illustrates land use classifications, organized into five categories: Residential, Mixed Use, Commercial, Industrial, and Public.
Residential
Low Density Residential. This designation is provides primarily for single family detached residential development. This designation provides for a range of lot sizes and allows up to 16 dwelling units per acre, with densities on the lower end of the range on larger lots and densities at the higher end of the range on small lots. In addition to single-family homes and accessory dwelling units (ADUs), other permitted land uses include schools, religious institutions, parks, and other community facilities appropriate within a residential neighborhood.
Medium Density Residential. This designation provides for a mix of housing types and may accommodate small lot single family, attached single family or townhomes, duplexes, triplexes, fourplexes, apartment buildings, or condominiums. Accessory Dwelling Units are also permitted in all residential districts.
Permitted residential density for this designation ranges 13 to 24 units per gross acre.
High Density Residential. This designation is intended primarily for higher-density multifamily apartments, townhomes, and
condominiums. Developments in this category are typically three to six stories high and located along major roads. Common area open space and shared amenities are required within a
development. Permitted residential density for this designation ranges from 25 to 60 units per gross acre.
§¨¦80
City of
Richmond
21ST ST
11TH ST
SAN PABLO AVE
17TH ST
VALE RD
DOVER AVE
20TH ST
STANTON AVE
PINE AVE
MINER AVE
19TH ST
16TH ST
15TH ST
AMADOR ST
RIVERS ST
SUTTER AVE
EMERIC AVE
12TH ST
14TH ST
HILLCREST RD
ROLLINGWOOD DR
13TH ST
SANFORD AVE
LAKE ST
RIDGE RD
CALIFORNIA AVE
22ND ST
18TH ST
BUSH AVE
JOHN AVE
WILLOW RD
ALPINE RD
BROOK WAY
PALMER AVE
TYLER ST
ESPANOLA CT
VAN NESS ST
POWELL ST
ARUNDEL WAY
DEVON WAY
MARIN AVE
MASON ST
WILCOX AVE
STANDARD ST
POST AVE
CHEVY WAY
ALFREDA BLVD
STONE ST
BAYO VISTA AVE
KELLEY AVE
FORDHAM ST
GREENWOOD DR
MANOR DR
YUBA AVE
MANCHESTER AVE
PULLMAN ST
FOLSOM AVE
MISSION AVE
AVON LN
VILLA DR
MISSION BELL DR
MACARTHUR AVE
MORROW DR
BEAU RIVAGE
BOWHILL LN
DOUGLAS ST
MIFLIN AVE
TRENTON BLVD
BONITA RD
MERRITT AVE
GLENLOCK ST
DEL CAMINO DR
FILLMORE ST
PABLO VISTA AVE
LOVEGROVE AVE
GLENN AVE
COLIN ST
ACAPULCO DR
MARELIA CT
BANCROFT LN
MONTOYA AVE
VENTURA AVE
ABELLA CIR
CLARE ST
JOEL CT
GERALD AVE
EVENS AVE
MANZANILLA DR
CARLFIELD ST
CORTE ST
OHARE AVE
CONTRA COSTA AVE
CASINO AVE
RUMRILL RD
WYMAN ST
RIVERSIDE AVE
REGINA AVE
BARRANCA ST
HUMBOLDT ST
E VICTORIA CT
SHASTA AVE
HARBORVIEW AVE
CLEMENT AVE
CONNECTICUT AVE
CHATTLETON LN
BARBARA LN
KIRK LN
JEAN CT
MADRONE WAY
WESTGATE CIR
W VICTORIA CT
FRIEDA CT
BROOKSIDE AVE
MONTE BUENA ST
DODSON ST
JUDITH CT
WANLASS AVE
DRAKE WAY
LARCHMONT LN
18TH ST
19TH ST
20TH ST19TH ST
BUSH AVE
15TH ST
15TH ST
21ST ST
18TH ST
SHASTA AVE
GLENN AVE
17TH ST
MERRITT AVE
RIVERSIDE AVE
14TH ST
18TH ST
DOVER AVE
19TH ST
22ND ST
MASON ST
15TH ST
16TH ST
17TH ST
POST AVE
LAKE ST
20TH ST
21ST ST
RIVERS ST
YUBA AVE
19TH ST
22ND ST
16TH ST
17TH ST
MINER AVE
ROSE ARBOR A VE
Bayview A ve
BOLDUC CT
CAPITO
LH
ILL AVE
W ESTVIEW
PL
N
ARLINGTONBLVD
H
ILLCREST
RD
MI
FFIN
AVE
EL PORTAL DR SAN PABLO DAM RD
ROAD 20
ROAD 20
BROOKSIDE DR
MARKET AVE
MARKET ST CHURCH LN
CHURCH LN
23RD ST
VALENCIA WAY
BROADWAY
ROAD 20 RUMRILL BLVD
CHESLEY AVE
RICHMOND PKWY
RICHMOND PKWY
City
Hall
Contra Costa
College
John
Herbert
Davis Park
San Pablo
Lytton
Casino
St. Joseph
Cemetery &
Funeral Center
Wanlass
Park
Rheem Creek
San Pablo Creek
Wildcat Creek
San Pablo Creek
Wildcat Cr eek
San Pablo Creek
BURLINGTON NORTHERN SANTA FE RR
UNION PACIFIC RR
San Pablo Avenue
PDA
!
Rumrill
Boulevard
PDA
!
23rd Street
PDA
!
SOURCE: City of San Pablo, 2025; Contra Costa County GIS, 2025; Dyett & Bhatia, 2025
0 0.2 0.40.1
Miles
Priority Development Areas
in San Pablo
J:\GISData\581_SanPablo_GP\GIS\Projects\GeneralPlan\Land Use Element Maps\Fig 3-3 Priority Development Areas in San Pablo.mxd Figure 3-3:
City Limits
Sphere of Influence
Major Roads
Minor Roads
Railroads
Priority Development Area (PDA)
San Pablo Avenue PDA
23rd Street PDA
Rumrill Boulevard PDA
Opportunity Sites
Vacant Sites
Underused Sites
San Pablo General Plan 2035
3-12
Mixed Use
Mixed Use Centers . This designation is intended for high density mixed use development. There are three mixed use center subcategories with different land use intentions, housing densities and typical FARs.
• Mixed Use Center North. Mixed use development on Mission Plaza, at the junction of Rumrill Boulevard, San Pablo Avenue, and Broadway Avenue, will be primarily residential with retail or other active commercial uses at the ground floor. The residential units will be small in size (averaging 600 square feet) to cater to students of the College and other smaller households. Typical height is expected to be four to six stories.
The maximum permitted FAR is 2.5 for residential and non - residential uses combined . No separate residential maximum density is specified, to enable maximum use of FAR by smaller housing units geared to students.
• Mixed Use Center South. Mixed use development at the former Circle S site, bounded by San Pablo Avenue, Church Lane, and Wildcat Creek, includes retail, medical, residential, and public/institutional uses. Active uses that promote pedestrian activity are encouraged on the ground floor. Typical height is two to three stories, with up to six stories allowed in certain locations. The area is actively being developed, with several institutional uses, including the West County Health Center and San Pablo City Hall, as well as a Walgreens building already built, and active construction on a new police
headquarters and training facili ty and new townhomes. The maximum permitted FAR is 2.5 and maximum permitted
residential density is up to 60 units per gross acre prior to the application of any density bonus .
• Mixed Use Center West. Mixed use development at this prominent western gateway into San Pablo will include
multiunit residential development with a permitted density of 30-60 units per gross acre and/or activity-generating
commercial uses with a maximum FAR of 2.5 inclusive of residential uses . The maximum permitted density and FAR may be calculated over the total area of adjoining parcels if they are proposed for redevelopment together as part of a single project. A mix of uses is encouraged but not required on individual sites. Typical buildi ng height is expected to be four to five stories with mixed use in either a vertical or horizontal format. Desired commercial uses include a grocery store, restaurants, and community-serving shops and services.
Other potential commercial uses include a food truck park with communal seating, a production facility with a tasting 3-13
Chapter 3: Land Use & Physical Design
room or retail sales point, and/or a commercial kitchen with on -site sales and dining. Residential developments that are "affordable by design" are encouraged, such as co - housing, micro -apartments, and modular construction.
Bonus density and other regulatory incentives will be
available for projects that provide public plazas, on -site recreational amenities, public art, and high -quality design features that build the visual presence of the
Rumrill/Market gateway.
Commercial Mixed Use. This designation is intended to foster a mix of commercial, office, service retail, public and residential uses. A mix of uses is encouraged but not required on
individual sites. Typical height is expected to be two to three stories. The maximum permitted FAR is 1.5. Residential uses are allowed only when the commercial FAR is 0.50 or greater.
Permitted density is 20 to 40 units per gross acre.
A major goal of the Land Use Element is to encourage mixed use development in San Pablo.
Employment Mixed Use. This designation seeks to foster a range of production, distribution, and repair -oriented businesses, including food production and distribution; small-scale auto and appliance repair; apparel, electronics, and furniture
manufacturing; and a host of other creative demonstration, showcase, and assembly uses. The intent is to provide
opportunities for smaller scale commercial, office, industrial, and hybrid uses seeking affordable spaces that do not require direct access to the regional transportation network and to provide jobs with good wages that do not require a college degree for local residents. On-site live/work housing is also encouraged within this designation. On sites over 0.25 acres, multiunit housing is permitted where adequate buffering and noise mitigation is provided. Maximum permitted FAR for non -residential uses is
0.6. San Pablo General Plan 2035
3-14
Residential Mixed Use. This designation provides for a mix of uses that includes residential, office, and retail. Development that fronts onto San Pablo Avenue is encouraged to have active commercial or community-serving uses at the ground floor; elsewhere, residential uses are permitted on the ground floor. Non -residential uses may include administrative, financial, business, professional, medical, dental and publi c uses that promote comings and goings . The typical height is expected to be two to three stories. The maximum permitted FAR is 1.5 for residential and non -residential uses combined.
Commercial/Industrial
Neighborhood Commercial. This designation provides for small - scale commercial uses that primarily provide convenience, personal services and social services such as retail and specialty shops, eating and drinking establishments, and commercial recreation that are convenient to those living nearby . It is designed to foster a pedestrian atmosphere along public streets. Residential uses are discouraged, unless they are incidental to the commercial use or part of a small -scale mixed use . The maximum permitted non- residential FAR is 1.0 . On smaller parcels, additional FAR may be permitted to achieve the desired vision for the area.
Regional Commercial. This designation is intended for medium to large-scale commercial development that serves local, community, and regional needs. It is typically easily accessible by freeways and regional roadways, and contains a range of goods and services such as retail, eating and drinking establishments, hotels and motels.
Multifamily residential uses are permitted at between 20 and 60 units per gross acre. The maximum permitted non-residential FAR is 0.75.
Entertainment District Overlay. This overlay district allows for intensification of an underlying commercial or mixed use designation. The entertainment district is easily accessed by freeways and regional roadways, and serves community and regional needs with a focus on entertainment, retail,
health/medical, and recreation uses. This includes nightlife venues, various types of theaters, arcades/game rooms, and eating and drinking establishments. Typical height is expected to be three to five stories. The maximum permitted FAR is 0.6 above the FAR of the base district.
Industrial Mixed Use. This designation is intended for light manufacturing, distribution, sales and services with ancillary commercial and office space, including single and multi -story office, flex -space, and industrial building s for single and multiple users, storage uses, and research and development activities. Uses 3-15
Chapter 3: Land Use & Physical Design
in this designation may require staging and support spaces, often outdoors. The maximum permitted FAR is 0.60.
Planned Development/Infill Opportunity. This designation is intended to promote high density residential and/or mixed-use development on a cluster of adjacent City-owned sites.
Permitted residential density is up to 60 units per net acre prior to any density bonus and an affordable housing component is required, consistent with Gov. Code, §§ 54220-54234.
Residential development should include a mix of unit types, including studios, one-bedroom units, micro-units and other smaller unit types suitable for singles and students as well as larger units for families. Live/work housing that provides opportunities for compatible home-based businesses is
encouraged. The site may be developed with residential uses alone; however, complementary non-residential uses such as business incubator space, commercial recreational uses, or space for workforce development and training activities are also desired.
Public/Institutional. This designation is intended for uses that serve a public purpose, including public and private schools, administrative offices, corporation yards, and public facilities, such as hospital and medical centers, police stations, and fire stations. There is no assumed buildout intensity for non- residential development.
Parks/Recreation. This designation is intended for improved and unimproved park facilities, including neighborhood,
community, and regional parks; and recreational facilities that provide open space and serve the outdoor recreational needs of the community. No FAR is assumed.
Air Quality Management Health Risk Overlay Zone. The purpose of the 500-foot overlay zone on both sides of Interstate 80 is to protect sensitive receptors from toxic air emissions, consistent with Bay Area Air Quality Management District guidelines. The City will avoid siting new sensitive uses, such as hospitals and medical facilities, schools, senior centers, and child care centers in this area, and will require special mitigation measures for any residential development built in this zone. New development is required to provide project-level mitigation measures to reduce vulnerability to toxic air emissions from the highway. The Air Quality section in the Open Space and Conservation Element provides details.
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Floor Area Ratio (FAR; includes all uses—non- Density
residential and residential) (units per gross acre)
Land Use Classification Minimum Maximum Range or Maximum Low Density Residential - - up to 12
Medium Density Residential - - 12.1 - 24
High Density Residential - - 24.1 - 60
Mixed Use Center North 0.302 2.5 up to 801
Mixed Use Center South 0.502 2.5 up to 601
Mixed Use Center West 0.307 2.5 30-601
Commercial Mixed Use 0.402 1.5 up to 501,4
Employment Mixed Use6 - 0.6 up to 60 -
Residential Mixed Use -.5 1.5 up to 501
Neighborhood Commercial 0.30 1.0 -
Regional Commercial 0.30 0.75 -
Entertainment District Overlay 0.6 above base
district maximum3 -
Industrial Mixed Use 0.60 -
Public Institutional - - -
Planned Development/ Infill Opportunity - - up to 60
Parks/Recreation - - -
1 Included within the FAR limit.
2 The frontage of a site along San Pablo Avenue is required to be devoted to active uses. 3 Additional FAR available for entertainment uses only. 4 Residential uses only allowed when commercial FAR is 0.5 or greater , except on sites within the PDA overlay, where standalone residential projects are permitted.
5 While no minimum FAR is specified, development along San Pablo Avenue must have active uses on the ground floor. 6 Multiunit housing is permitted only for sites over 0.25 acres, where adequate buffering and noise mitigation is provided. 7 Minimum FAR applies to non-residential uses only. Exceptions may be permitted if the proposed non-residential use would generate substantial pedestrian activity and contribute to the desired vision for the area.
Source: City of San Pablo, 2010; Dyett & Bhatia, 2010 and 2025 Table 3.2-1 San Pablo General Plan Land Use Density and Intensity Standards Chapter 3: Land Use & Physical Design
3-17
GENERAL PLAN BUILDOUT
The term “buildout” refers to the hypothetical situation where all anticipated development under the General Plan has
occurred. It should be noted that although the General Plan assumes a year horizon of approximately 20 years and
anticipates buildout to occur in 203 5, the actual timeline may be different. Additionally, the designation of a site for a certain use does not necessarily mean that site will be developed with that use. Market conditions and General Plan amendments and
updates may affect what is ultimately developed.
As described in Chapter 1 and shown on Table 3.2-2, based on development trends, regional growth forecasts, and
assumptions for future growth, it is estimated that the San Pablo Planning Area will accommodate approximately 34,950
residents, 11,510 housing units, and 8,510 jobs in 2035. This represents an increase of approximately 2,750 residents, 990 homes, and 2,610 jobs between 2010 and 2035. New development is projected to occur primarily in PDAs and new residential development would primarily be multifamily housing .
2010 Additional Buildout
(2035)
Percent Annual
Growth
Population 32,200 2,750 34,395 0.4
Households 9,680 940 10,620 0.5
Housing Units 10,520 990 11,510 0.5
Jobs 5,900 2,610 8,510 1.8
1 Existing and projection numbers rounded to the nearest ten. 2 Buildout population calculations assume 3.1 persons per household and 1.5 persons per secondary unit.
Source: Association of Bay Area Governments, 2009; City of San Pablo, 2010; Dyett & Bhatia, 2025.
A. Urban Form
San Pablo’s future land use development is guided by the community’s vision of an urban community, with medium to high-intensity mixed -use development in PDAs and generally low- to mid -density small lot residential development in the neighborhoods. The policies in this section are intended to help San Pablo achieve growth within the PDAs , without
compromising the predominantly low-density and low -rise single-family residential character of established neighborhoods.
Table 3.2-2 Population, Housing Units, Households, and Jobs at Buildout (2035)1
San Pablo General Plan 2035
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GUIDING POLICIES
LU-G-1 Promote a sustainable, balanced land use pattern that responds to existing and future needs of the
City, as well as physical and natural constraints.
LU-G-2 Ensure planned land uses are compatible with
existing uses and provide for appropriate
transitions or buffers for new uses, as needed.
IMPLEMENTING POLICIES
LU-I-1 Amend the Zoning Ordinance to :
• Implement General Plan land use
designations;
• Implement the Sustainable Transit Oriented
Development Master Plan;
• Promote Transit -Oriented Development
(TOD) at appropriate locations; and
• Reduce minimum parcel size for multifamily
development and incorporate development
standards to facilitate high quality
multifamily projects on opportunity sites in
San Pablo.
LU-I-2 Establish incentives in the Zoning Ordinance for the consolidation of small, adjacent lots to creat e
more developable parcels.
LU-I-3 Ensure that land use development occurs in an
orderly fashion and in pace with the expansion
of public facilities and services.
LU-I-4 Ensure appropriate transitions between single -
family neighborhoods and higher intensity uses.
LU-I-5 Study the feasibility of annexing the Hillside
area south of Hillcrest Road that is within the
City’s Sphere of Influence.
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B. Community Design
This section contains urban design policies that provide direction and guidance for the development of the City’s built environment.
These policies seek to enhance San Pablo’s image as a distinctive community with diverse architectural styles and to promote concepts such as pedestrian -oriented streets, landscaped streetscapes, and environmentally responsible design.
Additionally, policies promoting crime prevention through environmental design (CPTED) and defensible space
considerations are also included to respond to community priorities.
The use of landscaping, a uniform building setback line, and ground floor retail can help promote walkability.
GUIDING POLICIES
LU-G-3 Preserve and strengthen the City's overall image and create a safe, walkable and attractive urban
environment for current and future generations of
residents.
IMPLEMENTING POLICIES
LU-I-6 Require design review of all new construction and visible exterior alterations of large non -residential
buildings.
Any new non-residential construction or remodeling
of an existing building where exterior work alters
more than 50 percent of visible building façade,
San Pablo General Plan 2035
3-20
including exterior improvements, such as new
windows, doors or signage, should be subject to
design review.
LU-I-7 Provide incentives for new pedestrian -friendly anchor retail or active commercial uses at high
visibility intersections to attract retail and service
clientele and maximize foot traffic.
Incentives may include increased floor area ratios,
deferred impact fees, and priority processing.
LU-I-8 Apply Crime Prevention through Environmental
Design principles in the design of new
development and encourage the provision of
adequate public lighting; windows overlooking
streets or parking lots; and paths to increase
pedestrian activity within private d evelopment
projects and public facilities in order to enhance
public safety and reduce calls for service .
LU-I-9 Continue to involve the Police Department in the development review process to ensure new
buildings are designed with security and safety in
mind.
The Planning Division will continue to coordinate
with the Police Department with respect to
reviewing new development proposals. Issues to be
considered include the design and location of entries,
lobbies, hallways, and parking lots to ensure public
safety.
LU-I-10 Enhance the City’s unique identity and image by adopting a consistent or harmonious palette of
landscaping, street trees, lighting, and signage
within the public right s of way for neighborhood
street improvements.
LU-I-11 Enhance and celebrate key entrances to the City with signs, landscaping, street trees, lighting,
banners, gateway and/or entry features.
C. Residential Neighborhoods
San Pablo is a city of neighborhoods. Residential land use accounts for nearly half of the land within the City limit, with single -family homes as the predominant housing type. San Pablo neighborhoods Street trees provide shade and
also helps improve air quality.
Chapter 3: Land Use & Physical Design
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typically feature single -story homes on smaller lots with some smaller scale multifamily developments interspersed.
Neighborhoods east of Interstate 80 feature larger lots with some two story homes. Although San Pablo's neighborhoods are largely built out, increasingly, accessory dwelling units provide smaller, more affordable housing options in residential neighborhoods for relatives, friends, and renters. The City operates a robust residential health and safety program that helps ensure that existing hous ing complies with building, electrical, fire and plumbing code standards, ensuring that structures are safe for occupancy and that housing stock is adequately maintained. Most neighborhoods are within a 1/2 mile of shops and services, and the relatively fl at terrain in most of the city makes walking and bicycling an easy option for residents.
In community engagement activities , participants emphasized the desire to expand the supply and affordability of housing, improve the safety and attractiveness of neighborhoods, protect the local character of San Pablo, and prevent displacement of existing residents. Reflecting this input, General Plan policies strive to promote infill development and expand the range of housing options within established neighborhoods, while ensuring appropriate transition in scales between high density and low - density areas. The Plan also seeks to promote the development of community-centric pub lic spaces for recreation and amenities in housing developments, including private and public open space, landscaping, sidewalks, playgrou nds, and other community - focused amenities.
GUIDING POLICIES
LU-G-4 Protect and enhance quality of life in the city’s residential neighborhoods.
LU-G-5 Promote a variety of housing types and prices
within neighborhoods to serve the needs of all
economic segments of the community.
IMPLEMENTING POLICIES
LU-I-12 Allow for a range of residential development
intensities throughout the community to cultivate
a mix of housing types at varying sales price
points and rental rates, provide options for
residents of all income levels, and protect existing
residents from displacement.
San Pablo General Plan 2035
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LU-I-13 Promote the development of a greater variety of housing types and sizes in existing neighborhoods
to meet the needs of future demographics and
changing household sizes, including single-family
homes on small lots; accessory dwelling units;
alley-facing uni ts; townhomes; live -work spaces;
duplexes; triplexes; fourplexes; bungalow courts;
and senior and student housing.
LU-I-14 Facilitate the development of 3 and 4 -bedroom
homes and accessory dwelling units that cater to
larger, multi-generational families.
LU-I-15 Promote the preservation, maintenance, and
improvement of property through code
enforcement to mitigate or eliminate deterioration
and blight conditions, and to help encourage new
development and reinvestment.
LU-I-16 Encourage building placement variations, roofline variations, architectural projections, and other
embellishments to enhance the visual interest
along residential streets.
LU-I-17 Allow small -scale non -residential uses that
contribute to residential character or provide
complementary services within the neighborhood,
such as child care, neighborhood retail, and other
stores.
LU-I-18 Ensure that new development in or adjacent to
established neighborhoods is compatible in scale
and character with the surrounding area by:
• Promoting a transition in scale and architectural
character between new buildings and established
neighborhoods; and
• Requiring pedestrian circulation, transit access,
and vehicular routes to be well integrated.
LU-I-19 Provide regulatory, process, and/or market-based incentives for housing that offers residents a range
of amenities, including public and private open
space, landscaping, and recreation facilities with
direct access to commercial services, public transit,
and community gathering spaces.
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LU-I-20 Promote the development of public spaces that
serve as a neighborhood square or “commons” for
the surrounding neighborhood.
Neighborhood “commons” are concentrations of
activity and uses that serve an important social
function. They should be located within close
proximity and easy walking distance to adjacent
residences, generally no more than 5 minutes away.
These public spaces should be at least 5,000 square
feet in size and include outdoor seating and other
pedestrian amenities.
LU-I-21 Support residential infill on vacant and underused lots within existing neighborhoods.
Infill should be sensitive to the design elements
(building elements, setbacks, and heights) of
adjacent properties. Use of accessory dwelling
units, by-right duplexes, and missing middle -
density residential can help add housing and
enhance affordable housing opportunities in
existing neighborhoods.
LU-I-22 Encourage the use of innovative and cost-effective building materials, site design practices and
energy and water conservation measures to
conserve resources and reduce the cost of
residential development.
LU-I-23 Require new senior and supportive housing to
meet standards for accessibility.
Senior and supportive housing projects should be
located in areas that provide convenient access
(vehicular as well as pedestrian) to community
amenities, including transit; shopping, services
(including medical); parks and recreation; and social
and educational activities.
LU-I-24 Provide relocation assistance to low -income
residents if they are displaced due to
redevelopment and for those in mobile home
parks, if the park is redeveloped for another use.
San Pablo General Plan 2035
3-24
D. Priority Development Areas
San Pablo's principal commercial corridors - San Pablo Avenue, 23rd Street, and Rumrill Boulevard - offer significant potential for redevelopment with residential and job -generating uses. Today, these corridors are typically lined with older buildings and low- slung strip mall developments with large areas of surface parking.
Recognizing the potential for redevelopment to help further community priorities for economic development, housing choice, and improved quality of life, the City has designated three corridor segments as Priority Development Areas (PDAs), making them eligible for regional grant funding to support planning and public investment in transportation and utility infrastructure which in turn will help attract private investment to achieve the e nvisioned land use pattern and growth.
Shown on Figure 3-3 above, the three PDAs are:
• San Pablo Avenue PDA. This PDA spans the full length of San Pablo Avenue as it passes through the city. A specific plan was adopted in 2011 to guide the redevelopment of the 261 - acre area, envisioning several new mixed -use districts centered around key community services and regional
destinations, like Contra Costa College and Lytton Casino.
Since 2011, this PDA has been the primary focus of
development activity in the city.
• 23rd Street PDA . This PDA extends the full length of 23rd Street from Brookside south to the City limit, encompassing an area of 22 acres. A specific plan was adopted in 2007 to provide a long -term strategy for the revitalization of 23rd Street by facilitating mixed use in fill development on vacant and underutilized parcels, fostering a safe and pedestrian - friendly streetscape, and supporting the vitality of
neighborhood businesses. While the area has significant potential for new housing development, al most no
construction has occurred since 2011. Regulatory barriers have contributed, and repeal of the specific plan is envisioned under this Plan . General Plan policy provides guidance for redevelopment within the 23rd Street PDA with the intent of fostering a vibrant, walkable mixed use area. Zoning
standards will be updated as part of 2035 General Plan
implementation.
Chapter 3: Land Use & Physical Design
3-25
• Rumrill Boulevard PDA . Rumrill Boulevard is a two-lane arterial corridor that extends north from San Pablo’s
southwestern City limit to connect with Broadway and San Pablo Avenue. The southern portion of the corridor between Brookside and Costa is designated as a PDA. The area includes several large multi -family apartment complexes and a mobile home park, along with smaller multi -family and single-family residences. With a grant from the Metropolitan Transportation Commission, a Corridor Plan was prepared to guide
revitalization of the Rumrill Boulevard PDA in 2025,
incorporating strategies to foster transit -oriented
development, enhance equity, and bring mobility, housing, and economic development opportunities to the area. The Rumrill Corridor Plan is included as Appendix C of this General Plan.
The 2035 General Plan seeks to focus new development primarily within PDAs, capitalizing on transit accessibility and integrating complementary non - residential and residential uses to foster the creation of vibrant mixed use districts . The overall intent is to accommodate growth while helping to reduce auto dependence; preserve open space; promote economic development; and increase housing opportunities. PDAs will feature employment generator s, such as offices or retail shops, supported by medium and high density residential uses. Public amenities and facilities will also be an important part of the PDAs and may include urban open space, pedestrian-oriented walkways, and streetscape improvements.
Within the PDAs a range of uses, densities, and intensities is permitted, responding to the particular opportunities, constraints, and characteristics of the area. Overall, General Plan goals for PDAs support complementary uses, mitigate potential conflict, and promote pedestrian-oriented amenities.
GUIDING POLICIES
LU-G-6 Focus new development primarily in San Pablo's
Priority Development Areas to accommodate
growth while helping to reduce auto dependence;
preserve open space; promote economic
development; and increase housing opportunities.
LU-G-7 Recognize the importance of the promoting mixed- use development within Priority Development
Areas to the vitality and quality of life in San Pablo
San Pablo General Plan 2035
3-26
LU-G-8 Promote site sensitive design and pedestrian-
oriented activities in mixed-use developments.
IMPLEMENTING POLICIES
LU-I-25 Integrate a vibrant mix of residential and
commercial uses and promote redevelopment
within Priority Development Areas (see Figure
3.2) to revitalize San Pablo's commercial corridors,
support economic vitality, and foster new uses to
serve the community.
LU-I-26 Encourage mixed use development and the co -
location of residential and commercial uses within
site distance of one another on the site to promote
day and evening vitality.
LU-I-27 Facilitate the development of high density
housing within Priority Development Areas to
provide townhomes, apartments, and
condominiums that cater to the needs of residents
of all ages and stages of life. Encourage a mix of
for sale and rental housing units.
LU-I-28 Encourage site designs that create an active street frontage and screen parking from the frontages of
San Pablo Avenue, 23rd Street, and Rumrill
Boulevard. Desired elements include public
plazas, outdoor seating, public art, shade trees,
landscaping, and other features that contribute to
the pedestrian environment.
New development can help create pedestrian
environments with buildings oriented to the street,
continuous walkways and sidewalks, limited blank
walls, pedestrian-scaled buildings and signage,
parking screened from street view, landscaping and
shading devices, and places for people to rest and
meet.
LU-I-29 Orient residential uses to the street and discourage the use of walls and fences. Employ a variety of
techniques to buffer residential uses on the
corridors from traffic and noise, including
setbacks, landscaping, stoops, and raised entries.
Chapter 3: Land Use & Physical Design
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LU-I-30 Encourage new mixed -use and commercial
development to incorporate visual quality and
interest in architectural design on all visible sides
of buildings through the following approaches:
• Utilizing varied massing and roof types, floor
plans, detailed planting design, or color and
materials;
• Maintaining overall harmony while providing
smaller-scale variety; and
• Articulating building facades with distinctive
architectural features like awnings, windows,
doors, and other such elements.
LU-I-31 Ensure that ground floor commercial uses are
designed to incorporate transparency and
promote pedestrian activity.
LU-I-32 Provide regulatory, process, and market -based
incentives for residential and mixed use projects
that are designed around open space, greenery,
and/or recreational features for residents.
LU-I-33 Identify opportunities to provide publicly
accessible open spaces and plazas and ensure
clear connections to them.
LU-I-34 Encourage multi -family developments and live - work units in residential mixed use areas to
provide housing options that are affordable for
entrepreneurs, emerging industries, and home -
based business operators.
LU-I-35 Screen and buffer nonresidential projects to
protect adjacent residential property and other
sensitive land uses when necessary to mitigate
noise, glare and other adverse effects on adjacent
uses.
LU-I-36 Work with property owners of commercial
centers to facilitate redevelopment of
underutilized parcels.
LU-I-37 Adopt regulations, mechanisms, programs, or
incentives to facilitate the development or
temporary active use of vacant buildings and
property.
San Pablo General Plan 2035
3-28
LU-I-38 Continue to require development on parcels
adjacent to Wildcat Creek to use Best
Management Practices to prevent erosion,
sedimentation or spills into the creek, including
a minimum setback of 25 feet from top of bank.
LU-I-39 Require reciprocal parking and access
agreements between individual parcels where
practical.
LU-I-40 Ensure that noise, traffic, and other potential conflicts that may arise in a mix of commercial
and residential uses are mitigated through
sensitive site planning, building design, and/or
appropriate operational measures.
LU-I-41 Facilitate the relocation of existing non-
conforming uses to appropriate sites where
necessary.
LU-I-42 Support redevelopment or improvement projects
that involve private partnership or mutual
investment to optimize the use of remaining
Local Successor Agency funding.
The Housing Element includes additional policies and programs on housing in mixed use areas.
LU-I-43 Develop a distinct design theme with defined
objective standards and guidelines for each of the
special planning areas to foster an identifiable
image for each area.
The San Pablo Avenue Specific Plan includes such
standards and guidelines. Implementation of this
policy will focus on other special planning areas.
LU-I-44 Use the development and design standards and
guidelines established by the San Pablo Avenue
Specific Plan for development review in the San
Pablo Avenue corridor.
LU-I-45 Use the Rumrill Corridor Plan to guide the
evolution of the Rumrill Priority Development
Area into a highly livable corridor and a
destination for “food and fun” that attracts San
Pablo residents as well as visitors from around
the region. The goal is to f oster a vibrant
neighborhood with a variety of housing choices
for people of all ages and incomes, popular
recreation and entertainment destinations, and
Chapter 3: Land Use & Physical Design
3-29
successful businesses that provide quality jobs
for corridor residents as well as opportunities for
local entrepreneurs can locate and thrive .
LU-I-46 Repeal the 23 rd Street Specific Plan and replace with objective zoning standards to guide
development and design of projects in the 23 rd
Street PDA.
E. Commercial, Entertainment, and
Industrial Uses
COMMERCIAL AND ENTERTAINMENT USES
Commercial uses are primarily concentrated along San Pablo Avenue, 23rd Street, and Rumrill Boulevard within Priority Development Areas; however, there are some larger commercial uses on San Pablo Dam Road in the northeastern part of the city, as well as neighborhood serving commercial uses on Market Avenue, Broadway, and El Portal Drive. The largest concentration of commercial uses is at the intersection of San Pablo Avenue and San Pablo Dam Road, where San Pablo Lytton Casino and the city’s major regional commercial centers are located. These regional shopping centers feature larger parcels and expanses of surface parking that present an opportunity for redevelopment with complementary us es to better serve the community. The San Pablo Avenue Specific Plan establishes an Entertainment Overlay Zone applicable in this area to facilitate this type of redevelopment, and General Plan policy seeks to foster a wider mix of uses in the area, includ ing national or regional retail chains that will help create a vibrant entertainment and retail destination within walking distance of the Casino.
INDUSTRIAL AND SERVICE COMMERCIAL USES
Industrial and service commercial uses are generally located around the periphery of the city. There are industrial and service commercial uses on Rumrill Boulevard and Giant Road at the western edge of city near the Burlington Northern Santa Fe (BNSF) railroad tracks, and long San Pablo Dam Road close to Interstate
80. In particular, industrial and service commercial properties along Rumrill Boulevard may be attractive to smaller scale San Pablo General Plan 2035
3-30
manufacturing and repair -oriented businesses that seek more affordable space and do not require ready access to freeways and highways. The General Plan incorporates an Employment Mixed Use category applicable to these properties to help facilitate this type of development and the Rumrill Corridor Plan incorporates strategies to support the integration of this type of use into the fabric of the Rumrill PDA.
GUIDING POLICIES
LU-G-9 Retain and enhance commercial, industrial,
employment, and entertainment land use areas to
strengthen San Pablo’s economic base.
LU-G-10 Foster high quality design, diversity, and a mix of amenities in new commercial, industrial,
employment and entertainment focused
development.
IMPLEMENTING POLICIES
Commercial and Entertainment Uses
LU-I-47 Support the continued viability of regional retail and entertainment uses in San Pablo and
strengthen their role as destinations for San
Pablo residents and visitors to shop, dine, and
gather.
LU-I-48 Facilitate redevelopment and site improvements
at existing regional commercial and
entertainment centers that enhance business
vitality, establish pedestrian -orientation, create
more attractive buildings and public spaces,
support transit service, and redu ce vehicle trips.
LU-I-49 Encourage existing regional and neighborhood
shopping centers to integrate amenities, events,
and programming that strengthen their role
activity hubs within the community. Features to
integrate may include pedestrian amenities;
electric vehicle charging; bicycle parking; plazas
and public areas; shade trees; lighting; public art;
and community events.
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LU-I-50 Preserve and encourage neighborhood stores
that enable shoppers to walk or bike for
everyday needs, provide access to healthy foods,
and promote a sense of community.
LU-I-51 Focus on attracting essential services, such as medical clinics, a grocery store, banks, and dry
cleaners to shopping centers to provide for the
needs of area residents and ensure the vitality of
the shopping centers over time.
LU-I-52 Ensure that shopping centers and commercial
developments are designed in a manner
compatible with adjacent residential areas.
LU-I-53 Ensure that shopping centers conform to
regulations limiting the size, location, and
general character of signage and facades so as not
to disrupt the residential character of the
neighborhood.
LU-I-54 Work with existing business owners to promote
the improvement and maintenance of facades of
commercial uses.
LU-I-55 Amend the Zoning Ordinance and Map to
incorporate the Entertainment District Overlay
regulations and boundaries. The overlay is
intended to promote compatible development
through standards and bonus/incentive
provisions.
LU-I-56 Establish design guidelines to assure high quality design and site planning for large commercial ,
and employment-based developments. The
guidelines should address:
• Architectural finishes, coordinated color palette,
massing, and hierarchy in scale;
• Pedestrian-scaled amenities, signage, and
lighting;
• Site improvements, including parking lot
landscaping, perimeter landscaping, foundation
landscaping, street trees, walkways, and
passageways.
• Ground floor transparency requirements along
shopping streets and limitations on blank walls
in these areas.
San Pablo General Plan 2035
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• Promotion of public art and community based
outdoor space.
• Anti-theft glass on windows, instead of bars or
roll-down metal screens, that are
architecturally compatible with building
design.
LU-I-57 Ensure the timely completion of necessary
infrastructure to support new commercial,
employment-based, or industrial development.
LU-I-58 Establish zoning standards, including maximum size and separation requirements, for any
commercial land use type that could adversely
affect adjacent residential areas or create health
and safety impacts.
Adult businesses, check -cashing establishments, and
alcohol sales are typical of the types of uses that
would be subject to this policy.
Industrial and Manufacturing Uses
LU-I-59 Focus industrial, manufacturing, and service
commercial uses along major roadways in the
western part of the city, subject to development
standards that limit noise, odor and emissions
beyond the boundaries of the site.
LU-I-60 Maintain sufficient land to accommodate a range of production, distribution, and repair -oriented
uses, including manufacturing, repair, food
production and distribution uses.
LU-I-61 As market conditions permit, facilitate the
conversion of existing industrial and service
commercial uses to production, distribution and
repair-oriented spaces (ie. artist live/work, small
scale manufacturing, production) that provide
new jobs and compara ble employment
opportunities without the environmental impacts
of traditional industrial uses.
LU-I-62 Allow secondary uses in light industrial and
manufacturing developments, such as
restaurants, gift shops, cafés, dry cleaners, day
Chapter 3: Land Use & Physical Design
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care, and other complementary employee -
serving uses, upon finding that such uses are
compatible with the primary use.
LU-I-63 Allow for the introduction of compatible
residential and commercial uses, such as live-
work units, artisan shops/studios, brew pubs,
coffee shops, and tasting rooms, in Employment
Mixed-Use areas.
LU-I-64 Encourage the development and maintenance of
well-designed industrial and light industrial
properties and structures that meet adopted
standards for visual quality and design .
F. Civic and Institutional
Civic and institutional uses, such as government facilities, hospitals schools, community centers, parks, and religious institutions; provide essential services to the San Pablo community. Sites allocated for these facilities are indicated on the General Plan Land Use Diagram and are spread throughout the city to ensure convenient access for all residents. Plan policies in this section pertain specifically to the land use needs of these facilities. Additional policies promoting their development and affecting their management are located in the Public Facilities and Utilities Element.
GUIDING POLICIES
LU-G-11 Provide for the development of civic and
institutional land uses to meet the educational,
medical, social, economic, cultural, and religious
needs of the community.
LU-G-12 Protect civic and institutional areas from
incompatible uses that could affect their vitality and
service to the community.
San Pablo General Plan 2035
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IMPLEMENTING POLICIES
LU-I-65 Designate land for civic and institutional land uses, including parks and open spaces, health
and medical facilities, emergency services,
educational institutions, and other public
services.
LU-I-66 Coordinate with Contra Costa College on the
planning and design of the Mixed-Use Center
North area so that this institutional facility will
have strong physical and social connections to
the surrounding neighborhood. Participate on
future campus planning efforts to better
integrate the College into the community and
vice versa.
LU-I-67 Create community “hubs” by allowing civic uses to be mixed with retail and service uses, in
appropriate locations.
The library, for example, can provide an anchor
tenant for a community gathering area.
G. Special Planning Subarea
Located east of Interstate 80, the San Pablo Dam Road subarea is distinct from other parts of the city. It features steeper hillside terrain and is developed at a less -dense more suburban pattern than the rest of the city. Existing development consists of commercial uses, small shopping centers, and multi -family apartment and condominium complexes. The area contains
properties with steep wooded slopes that are not suitable for development. The General Plan goal for this subarea is to retain and enhance its neighborhood identity and focus on residential land use patterns that will not disrupt the semi -rural quality of area. Future development should optimize freeway accessibility and encourage the use of the existing retail and commercial activities centered on Princeton Plaza. Pedestrian and bike access to the low -density residential uses in the hillside should be facilitated through multi -modal circulation improvements while existing open space in the east hills due to development hazards from wildfire and slope instability and as an important visual resource for future residents.
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The City aims to protect the semi-rural nature of the hillside areas east of San Pablo Dam Road through open space protection strategies.
GUIDING POLICIES
LU-G-13 Preserve and enhance the distinctive character of San Pablo Dam Road and the surrounding hillside
neighborhoods.
IMPLEMENTING POLICIES
San Pablo Dam Road
LU-I-68 Focus sub -regional and neighborhood
commercial development, and other
complementary uses within or adjacent to
Princeton Plaza on San Pablo Dam Road.
LU-I-69 Protect the semi-rural character of the hillside area through the integration and balance of
usable open space areas and residential uses.
LU-I-70 Improve pedestrian access within the hillside
neighborhood, its connection to the regional
park system, and connections to the
Entertainment District across the I -80 overpass.
LU-I-71 Consider designating vacant parcels with
limited access, steep topography, and irregular
size for public open spaces uses, with adequate
wildfire protection provisions.
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4 The purpose of the Growth Management Element (GME) is to establish policies that will lead to sustainable growth and promote more efficient coordination of land use, transportation, and infrastructure development. This Element balances the demands for public facilities generated by new development with plans, capital improvement programs, and a development mitigation program. The GME is consistent with the current requirements of the Contra Costa Transportation Improvement and Growth Management Program (Measure J) passed by Contra Costa County voters in 2004 and administered by the Contra Costa Transportation Authority. Measure J extended Measure C, which established requirements for the Growth Management Element in the prior General Plan.
4.1 Background
MEASURE C
In 1988, the voters of Contra Costa County approved the Contra Costa Transportation Improvement and Growth Management
Ordinance (Measure C), which provided for a half -cent sales tax to fund transportation project and programs in the County.
The goal of the measure was to improve the quality of life in Contra Costa County by reducing congestion on major streets and highways, and by keeping new growth in balance with the capacity of public facilities. It required cities such as San Pablo to:
• Adopt a GME in their General Plans, including Level of Service standards for non -regional routes and
performance standards for public facilities;
GROWTH
MANAGEMENT
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• Implement a range of programs to ensure new
development pays its fair share of the costs of additional facilities needed to support it;
• Participate in joint planning with other jurisdictions in Contra Costa County on matters concerning growth;
• Develop a five -year capital improvement program to
meet or maintain traffic service and performance
standards;
• Adopt a transportation demand management
resolution or ordinance; and
• Address the balance of jobs and housing within the
jurisdiction.
Since going into effect in 1989, Measure C funding has provided for several capital improvement projects in or close to San Pablo, including the improvement of the North Richmond/I -80 bypass and realignment of Camino Pablo/San Pablo Dam
Road. The original Measure C had a sunset date of March 30, 2009.
MEASURE J
In 2004, Contra Costa County voters authorized an extension of Measure C with modifications to the growth management
program set up by Measure C. This new measure, named
Measure J, came into effect on April 1, 2009. The basic requirements of Measure J are similar to those in Measure C, except the requirements for the GME have been simplified and the GME no longer requires traffic Level of Service standards and performance standards. Additionally, Measure J imposes two new requirements: 1) local jurisdictions must demonstrate reasonable progress in providing housing options for people of all income levels in a periodic report to the Contra Costa Transportation Authority, and 2) they must adopt a voter- approved Urban Limit Line (ULL) that complies with the
“Principles of Agreement” as established by the Contra Costa Transportation Authority.
Besides the changes mentioned above, the overall objectives of the Growth Management Program are to:
• Assure that new residential, business and commercial
growth pays for the facilities required to meet the
demands resulting from that growth;
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• Require cooperative transportation and land use
planning among local jurisdictions in the County;
• Support land use patterns within Contra Costa County
that make more efficient use of the transportation
system, consistent with the General Plans of local
jurisdictions; and
• Support infill and redevelopment in existing urban areas.
As with Measure C, local jurisdictions are required to adopt and maintain a GME. By adopting this GME San Pablo is
eligible to receive its share of the Local Transportation Maintenance and Improvement funds generated by the
Measure J Sales Tax and is also eligible for Contra Costa Transportation for Livable Communities (CCTLC) Funds.
Under Measure J, the new growth management program will remain in effect through year 2034. The City provides an update on its Growth Management progress to the Contra
Costa T ransportation Authority every two years in order to remain eligible for transportation funds that flow through the agency.
Growth Management Element policies ensure that new developments contribute to the establishment of parks, fire, police, sewer, and other services.
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4.2 The Growth Management Element
AUTHORITY
The Growth Management Element is adopted pursuant to the authority granted to local jurisdictions by Section 65303 of the Government Code of the State of California, which states:
"The general plan may include any other elements or
address any other subjects which, in the judgment of the legislative body, relate to the physical development of the county or city."
RELATION TO OTHER PLAN ELEMENTS
The GME is one of several elements of the General Plan. The role of the GME within the context of the General Plan is to provide policy direction on managing growth and funding improvements needed to mitigate the impacts of development.
The policies in the GME complement and inform policies of other General Plan elements.
Crucial relationships exist between the GME and other General Plan elements. How much growth is desirable and whether development provides opportunities for affordable housing, promotes walkability, or grows the local employment, are all issues that tie the elements together. For instance, Circulation Element policies must consider routes of regional significance designated under the Measure J growth management program and the need to participate in regional planning efforts as specified in the GME. The Land Use Element is also closely tied to the GME. The adoption of an Urban Limit Line, for example, impacts the design of land use patterns and limit s urban expansion in San Pablo. Safety policies, especially policies limiting further growth based on a threat to public health, safety or welfare, must also be consistent with the GME.
Because many General Plan elements are interrelated, there is some overlap in policies and actions from element to element.
Where this overlap occurs, cross references between elements are provided.
REGULATORY FRAMEWORK AND DEFINITIONS
Contra Costa Transportation Authority. The Contra Costa Transportation Authority (CCTA) was created in 1988 to
manage the funds generated by the voter-approved, half-cent Chapter 4: Growth Management
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transportation sales tax, Measure C and its extension Measure J. CCTA oversees planning and construction of capital projects included in the Measure C and Measure J Expenditure Plans and implements the County’s Growth Management Program.
CCTA also serves as Contra Costa’s Congestion Management Agency (CMA).
West Contra Costa County Transportation Commission. The West Contra Costa County Transportation Commission
(WCCTC, formerly known as the West Contra Costa County
Transportation Advisory Committee or WCCTAC ) is one of four sub -regional transportation planning committees created in 1988 to advise the CCTA on Measure C expenditures and transportation concerns specifically related to the cities of San Pablo, Richmond, El Cerrito, Hercules, and Pinole as well as the transit agencies serving these cities includin g AC Transit, WestCAT, and BART. The WCCTC also assists in designing and implementing improvement projects and programs related to transportation services that are not specifically linked to Measure J funding, such as air quality improvement and congestion management.
Urban Limit Line (ULL). The Urban Limit Line or ULL is a planning boundary, defined by voters, beyond which no urban land uses can be designated during the term of the General Plan. Properties that are located outside the ULL may not obtain General Plan Amendments that would re -designate them for an urban land use. Land inside the ULL is governed by the land use designations contained in the General Plan.
However, the fact that a property is located inside the ULL provides no guarantee or implication that i t may be developed during the lifetime of the General Plan.
Routes of Regional Significance. Routes of Regional
Significance are designated by CCTA based on
recommendations from the regional transportation planning committees (RTPCs) such as WCCTC. In evaluating the
appropriateness of the designation, the following criteria are used: (1) connection of two or more “regions” of the County; (2) connection across County boundaries; (3) significant amount of through traffic; and (4) provision of access to a regional highway or transit facility (e.g. , a BART station or freeway interchange). The designation of regional routes was essentially completed in the 1990s and consists of Interstate -80, San Pablo Avenue, 23rd Street, El Portal Drive, and San Pablo Dam Road.
Other roads may be proposed in the future for designation by WCCTC, subject to approval of CCTA.
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Action Plan. A document prepared by WCCTC for adoption by CCTA that includes: (1) a specific program for each designated Route of Regional Significance, consisting of traffic service objectives and actions and responsibilities for implementing them; (2) regional actions for reducing congestion such as land use policy changes and demand management strategies; and (3) a process for monitoring and review of activities that might affect the performance of the regional transportation system.
The latest WCCTC Action Plan Upd ate was completed in
February 2023.
Transportation Demand Management (TDM). A program to
increase the efficiency of the transportation systems, reduce demand for road capacity during the peak hour, and otherwise affect travel behavior to minimize the need for capacity increasing capital projects. An adopted TDM program is a requirement for compliance with Measure J.
4.3 Urban Limit Line
The City of San Pablo is bordered on all sides by developed areas of the City of Richmond and El Sobrante Township.
Because of the urbanized nature of its location, the City has little geographic space in which to expand and its incorporated boundary has remained largely unchanged since the 1980s. The unincorporated Rollingwood neighborhood, which is in the City’s Planning Area, is within the County’s Urban Limit Line (ULL).
In response to Measure J, the City has adopted the County’s voter-approved ULL as the City’s ULL to identify the City’s planned urban area. Policies related to the Urban Limit Line are listed below.
GUIDING POLICIES
GME-G-1 Manage the City’s growth and protect open space by establishing an Urban Limit Line (ULL).
IMPLEMENTING POLICIES
GME-I-1 Adopt and maintain a voter-approved ULL in
the General Plan Land Use Diagram,
consistent with the requirements of Measure J,
to promote compact, infill development and
protect open space.
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For purposes of this policy, an “Urban Limit Line” is
defined as a boundary beyond which urban
development may not occur. “Urban development”
refers to development requiring one or more municipal
services such as water service, sewer service, storm
drainage, and other public facilities and services.
GME-I-2 Allow the ULL to be amended by a vote of San Pablo’s residents or by the City Council by a majority vote after holding a public hearing and making one or more of the
following findings based on substantial evidence in the record:
• A natural or human-caused disaster or public
emergency has occurred that warrants the provision of
housing and/or other community needs on land located
outside the ULL;
• An objective study has determined that the ULL is
preventing the City from providing its fair share of
affordable housing, or regional housing; as required by State law, and the City Council finds that a change to the ULL is necessary and the only feasible means to
enable the City to meet these requirements;
• The change is minor, affecting no more than five acres in a given calendar year or 30 acres of land in total through January 1, 203 5; the land subject to the change is
immediately adjacent to developed land and water and
sewer connections are available; there is no vacant land available within the ULL to accommodate the proposed
development; and it is not reasonably feasible to
accommodate the proposed development by re -
designating land within the ULL; or
• The change is required to conform to applicable
California or Federal law.
4.4 Development Review and
Mitigation
Under Measure J, each jurisdiction in the County must
consider, evaluate, and develop programs to mitigate the impacts of new development on automobile, pedestrian,
bicycle, and transit facilities, both locally and regionally.
Additionally, Measure J directs jurisdictions to establish and San Pablo General Plan 2035
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adopt programs to ensure that new growth pays its share of the costs associated with that growth.
For projects that are anticipated to generate in excess of 100 net new peak hour vehicle trips, traffic studies are required to identify the project -specific transportation impacts on the local and regional street network. The City may set a different threshold for requirements of these studies. In addition to identifying project -related impacts and an estimate of vehicle miles travelled (VMT) , traffic studies should provide a means for identifying mitigation measures , such as construction of roadway improvements or payment of a pro rata share of the cost to construct those improvements. General Plan programs that promote the use of transportation alternatives to the automobile may be incorporated by reference into the traffic study.
Regardless of whether a traffic study is prepared for a project, project developers are still required to pay mitigation fees to help fund planned improvements to the local or regional roadway system as part of broader mitigation programs. These programs include both a local portion to mitigate impacts on local streets and facilities, and a regional portion to fund regional and subregional transportation projects. Some
examples of local transportation projects that may be funded in part by development mitigation fees are new bicycle routes and parking facilities. Where mitigation programs require payment of fees for purposes of mitigating the specific impacts of proposed development, the programs must preclude the
possibility for Measure J monies to be used to offset or replace any development -related mitigation fees that would otherwise be collected from developers.
Following the passage of Measure C, to standardize the
mitigation fees and collection programs in the CCTA area, t he West County Subregional Transportation Mitigation Program (STMP) was developed with the participation and concurrence of local jurisdictions in determining the most feasible methods of mitigating regional traffic impacts.
In late 2016, WCCTC began the process of updating the STMP and its nexus study. The consultant team developed a series of technical memos program, reviewed West County existing conditions and growth projections, developed criteria for a project list and identified projects and determined the nexus between the projects and the maximum potential fee that could be charged.
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During the first quarter of 2019, the City of San Pablo, as well as El Cerrito, Hercules, Pinole, Richmond, and the County of Contra Costa each adopted a new ordinance implementing the 2019 STMP update. These jurisdictions share a desire to assure that new development in West County pays its fair share toward regional circ ulation and transit improvements that are proportional to the traffic impact the new development will generate. The local fees collected in West County provide congestion relief to mitigate traffic on regional routes and through improved transit service.
The updated 2019 STMP program began on July 1, 2019. Fees are adjusted each year based on the Engineering News Record's February Construction Cost Index for the San Francisco Bay Area.
GUIDING POLICIES
GME-G-2 Provide adequate infrastructure and facilities to meet the demands of new development and population
growth.
GME-G-3 Provide new and improved pedestrian, bicycle,
parking, transit and multi -modal facilities, as
envisioned in the Circulation Element.
The General Plan Circulation Element provides policy
direction on pedestrian, bicycle, and transit -related
issues. (See Chapter 5).
IMPLEMENTING POLICIES
GME-I-3 Continue to require new development to pay its
fair share of needed transportation
improvements through impact fees, community
benefit agreements, and other mechanisms,
through use of the STMP fee developed by
CCTA.
Under the development mitigation programs, the City
collects fees to mitigate transportation impacts to both local and regional transportation facilities. This ensures new development contributes a fair amount to maintain
or improve transportation facilities and services in
proportion to the demand generated by project
occupants and users.
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IMPLEMENTING POLICIES
GME-I-4 Continue to require new development to pay
its fair share of needed transportation
improvements through impact fees,
community benefit agreements, and other
mechanisms, through use of the STMP fee
developed by CCTA.
Under the development mitigation programs, the City
collects fees to mitigate transportation impacts to both local and regional transportation facilities. This
ensures new development contributes a fair amount to
maintain or improve transportation facilities and
services in proportion to the demand generated by
project occupants and users.
GME-I-5 Approve a development project only after
making findings that one or more of the
following conditions are met:
• No revenue from Measure J will be used to
replace or provide developer funding that has or
would have been committed to any
mitigation project;
• The development project will fully fund public
facilities and infrastructure as necessary to
mitigate any incremental impacts arising from
the new development; and
• The development project will pay mitigation
fees for public facilities and infrastructure
improvements in proportion to the
development’s impacts.
GME-I-6 Prepare and adopt a five-year Capital
Improvement Program (CIP) that describes City -
sponsored capital projects. The CIP shall include
funding sources covering the complete cost of the
project as well as intended phasing, and be
reviewed every five years so that it accurate reflects
the City’s priorities and community needs.
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GME-I-7 Continue to support a regional development
mitigation program consistent with the
Countywide Comprehensive Transportation
Plan that funds regional and sub -regional
projects. Regional mitigation measures may
include fees, assessments, exactions or other
contributions that provide community facilities
and infrastructure for planned and p roposed
development.
Policies specifically related to improving bicycle and pedestrian networks are included in Chapter 5: Circulation.
4.5 Transportation Planning
The City recognizes the important role played by transportation planning and supports cooperative transportation planning efforts with surrounding jurisdictions to manage growth. At the local level, San Pablo seeks to improve land use and
transportation planning through policies that improve transit ridership, promote mixed use development along transit
corridors (additional information is in Chapter 3 of the General Plan, the Land Use Element), encourage walkability and
bikeability with an interconnected system of walkways and bicycle routes (additional information is in Chapter 5, Circulation Element). At the regional level, San Pablo participates in regional transportation planning in consultation with Contra Costa Transportation Authority, AC Transit, Bay Area Rapid Transit (BART), and other transportation agencies as well as nearby cities.
Goals and policies in this section will help to address transportation planning, particularly in relation to regional growth. Policies on circulation, road improvements, traffic standards, and transit related issues, are contained in the General Plan Circulation Element.
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The City pursues funding from the Contra Costa Transportation Authority for roadway projects to maintain level of service standards.
GUIDING POLICIES
GME-G-4 Promote mixed-use, high density infill development and support land use patterns that make more
efficient use of the transportation system.
GME-G-5 Continue to support a cooperative inter-
jurisdictional growth monitoring and decision-
making process and coordinated planning between
San Pablo and its neighboring cities, the County,
and other public and regional agencies.
GME-G-6 Continue to support efforts to establish a regional approach to transportation and land use planning.
GME-G-7 Coordinate circulation system plans with other
jurisdictions’ and agencies’ plans, including but not
limited to Richmond, Pinole, the Contra Costa
Transportation Authority, and Caltrans.
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IMPLEMENTING POLICIES
GME-I-8 Continue to participate in on-going, regional transportation planning efforts in cooperation
with other jurisdictions and agencies to reduce
cumulative regional traffic impacts.
The City will collaborate with neighboring cities and
regional transportation agencies to create an efficient and balanced transportation system and support
regional growth management efforts. Additionally,
City staff will participate in Contra Costa
Transportation Authority’s conflict resolution process as needed to resolve disputes related to the development
and implementation of Action Plans and other programs
described in this Element.
GME-I-9 Continue to work with West Contra Costa
Transportation Commission (WCCTC), the
Contra Costa Transportation Authority and
surrounding jurisdictions to help develop
General Plans, Specific Plans, and other
programs, and study the effect of large
developments on the regional transportation
system.
GME-I-10 Continue to implement local actions specified
in the adopted WCCTC Action Plan in a timely
manner, consistent with the adopted action
plan.
GME-I-11 Pursue funding from the Contra Costa
Transportation Authority for roadway projects
intended to implement Action Plans for
Regional Routes or provide for local
improvements.
In no case will revenue from the CCTA Local Street
Improvement and Maintenance Fund replace private
developer funding for transportation projects needed
to mitigate adverse impacts as a result of new
development in new growth areas.
GME-I-12 Assist Contra Costa Transportation Authority in maintaining the travel demand modeling
system by providing the Authority with
information on planned, proposed, and
approved developments within the City.
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GME-I-13 Adopt and implement a Transportation Demand Management (TDM) policy or ordinance.
GME-I-14 As part of development review, require
preparation of a traffic impact study for all
development projects expected to generate more
than 100 net new peak hour vehicle trips. Ensure
that traffic impact studies, include an analysis of
the impacts of project -related traffic and
roadway improvements on pedestrians,
bicyclists and transit users, and are prepared by
professional transportation consultants selected
and hired by the City. Require that project
proponents pay all fees associated with
development of such studies.
The traffic impact studies managed by City staff should be prepared according to CCTA’s Technical Procedures,
and the Institute of Transportation Engineers’ Traffic
Access and Impact Studies for Site Development,
Proposed Recommended Practice or similar resources .
When the traffic study identifies significant impacts to pedestrian, bicycle and transit users as a result of a
project, the study should identify appropriate mitigation measures to reduce impacts and /or make compensatory
adjustments.
GME-I-15 Apply the Contra Costa Transportation
Authority’s travel demand model and technical
procedures to the analysis of General Plan
amendments and developments exceeding 100
net new peak -hour vehicle trips for their impact
on Regional Routes of Significance and Action
Plan objectives.
4.6 Housing Options
Improving existing housing stock and increasing access to high quality, affordable housing is critical in ensuring the safety, economic stability, and health of San Pablo residents. Keeping in line with the General Plan Housing Element, the City should continue to progress in providing housing opportunities for all income levels through policies that assist in tracking existing housing stock and meeting projected housing needs .
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GUIDING POLICIES
GME-G-8 Periodically demonstrate reasonable progress in providing housing opportunities for all income
levels.
IMPLEMENTING POLICIES
GME-I-16 Prepare an annual report summarizing San
Pablo’s progress in implementing the General
Plan Housing Element, and submit copies of the
report to CCTA biennially.
Measure J requires that the annual report on the
implementation of the Housing Element be submitted to
CCTA every other year. The report must describe how
the City intends to meet projected housing needs.
Specifically, the report must include the following:
• A table of t he number of housing units approved,
constructed or occupied in the City since the
beginning of the reporting period, compared to the
average number of units needed annually to meet the
fair share regional housing need; or
• A description of how the City has adequately
planned to meet the existing and projected housing
needs through the adoption of land use plans and
regulatory systems which provide opportunities for,
and do not unduly constrain, housing development;
or
• A description of how the plans and policies of the
General Plan and the land use regulations of the
Zoning Ordinance facilitate the improvement and
development of the City’s fair share regional housing
need.
Additionally, the report must provide an analysis of
transportation impacts of the City’s housing
development projects on local and regional transit
systems, and report on the City’s progress in
incorporating measures supporting bicycle, pedestrian
and transit access into its development approval
process.
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5 The Circulation Element is intended to ensure an efficient circulation system for all transportation system users. The Element is based on a fundamental philosophy that traffic conditions in the city can be managed through a comprehensive program of transportation planning, land use planning, and growth management strategies. This Element includes
provisions for roadway, transit, pedestrian, and bicycle transportation modes, as well as parking, trucks, and
transportation demand management strategies.
State law recognizes that circulation and land use are closely related and requires that policies in this Element and the Land Use Element be linked. Careful integration of the City’s traffic and circulation policies with its land use policies will ensure that existing and future developments are well served by different modes of travel. The City is committed to designing a multi - modal system of regional routes, local roads, public transit, and bicycle and pedestrian routes that will enhance the community and protect the environment.
5.1 Circulation Framework
Transportation planning plays an important role in cities because it helps achieve a balanced, efficient circulation system. In San Pablo, this planning is carried out in a three-pronged approach.
First, transportation policies and programs are based on land use planning. Second, the City’s planning efforts are integrated with those of the Metropolitan Transportation Commission (MTC), Contra Costa Transportation Authority (CCTA) , the California Department of Transportation ( Caltrans), an d the Alameda - Contra Costa Transit District (AC Transit ) in a cooperative, regional effort. Third, the existing circulation network is constantly being improved upon to accommodate and balance the current and future needs of all users. The concurrent
implementation of all three strategies helps San Pablo’s circulation system to operate at an optimal level.
5 CIRCULATION
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The Circulation Element provides policies and specific actions to guide a “Complete Streets” concept for circulation planning. The objective is to create a balanced transportation network that serves the needs of bicyclists and pedestrians as well as buses, cars, and other motor vehicles. In addition, the proposed network is designed to encourage pedestrian activity,
particularly at high-activity centers, and reduce auto- dependence by facilitating the use of alternative modes of travel.
The complete streets concept is about re-
envisioning roadways as a system to move
people, not just cars.
In September 2008, the Governor signed into law the California Complete Streets Act, requiring that General Plans develop a plan for a multi-modal transportation system. The goal of the Act is to encourage cities to rethink policies that emphasize
automobile circulation and prioritize motor vehicle improvements and come up with creative solutions that emphasize all modes of transportation. Complete Streets design has many advantages. When people have more transportation options, there are fewer traffic jams and the overall capacity of the transportation network increases. Additionally, increased transit ridership, walking, and biking can reduce air
pollution, energy consumption, and greenhouse gas
Complete Streets
To further the goal of optimizing travel by all
modes, this General Plan incorporates the concept
of “Complete Streets”. Complete Streets are
designed and operated to enable safe, attractive,
and comfortable access and travel for all users,
including motorists, pedestrians, bicyclists,
children, seniors, individuals with disabilities, and
users of public transportation.
While there is no standard design template for a
Complete Street, it generally includes one or more
of the following features: bicycle lanes, wide
shoulders, plenty of well -designed and well -placed
crosswalks, crossing islands in appropriate
midblock locations, bus pullouts or special bus lanes,
audible pedestrian signals, sidewalk bulb- outs,
center medians, and street trees, planter strips and
ground cover. Complete Streets create a sense of
place and improve social interaction du e to their
emphasis on encouraging pedestrian activity.
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emissions, while improving the overall travel experience for road users.
The City has completed a number of Complete Street and Road Diet projects, including the San Pablo Avenue Complete Streets Project, the 23rd Street road diet, and the Rumrill Complete Streets Project.
The San Pablo Avenue Complete Streets Project focused on multimodal access, safety, and connection s along San Pablo Avenue between Rumrill Boulevard and La Puerta Road . In 2012, the City of Richmond and the City of San Pablo began collaborating on a complete streets project for the segment of San Pablo Avenue located between Rivers Street and Hilltop Drive. In 2013, the San Pablo Avenue Complete Streets Study was prepared to identify the needs and priorit y improvements to facilitate auto, pedestrian, bicycle and transit trips within and through the corridor. Project improvements included Class II bike lanes in both directions of travel, added sidewalks, removal of an existing slip lane, installation of a new traffic signal at La Puerta Road, modification to existing traffic signals, and improvements to striping, street lighting, and landscaping. The project was completed in 2020. The improvements along San Pablo Avenue between La Puerta Road and Hilltop Drive will be further developed in a future project by the City of Richmond.
The 23rd Street Traffic Calming Project implemented a road diet along the length of 23rd Street from San Pablo Avenue south to the city limit. The project converted the existing four -lane roadway into a three -lane section with one through lane in each direction separated by a center two -way left-turn lane. The project was also intended to encourage increased pedestrian and bi cycle travel, with the addition of a Class II bike lane along 23 rd Street. The project was completed in 2012.
The purpose of the Rumrill Boulevard Complete Streets Project was to calm traffic, improve safety, increase the appeal of walking and bicycling, improve stormwater quality and enhance the appearance of the corridor for businesses, residents, and everyday travel. It improved sidewalks and added Class IV bicycle lanes i n both directions of travel. It also implemented a road diet, reducing the number of travel lanes from four to two. The project was completed in 2025.
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5.2 Roadway Network
The Roadway Network categorizes roadways and other
transportation facilities. Each classification reflects the character of the roadway as well as its function within the context of the entire circulation system. The classifications have standards considering a facility’s relation to surrounding land uses, existing right -of-way, accessibility via other roadways, and appropriate travel speeds. The classification system prioritizes travel modes for each road, but also indicates how to accommodate multiple travel modes. Roadway
classifications are shown in Figure 5-1 and are described below.
Street cross sections are in Figure 5-3. Table 5.2-1 summarizes the modes for each type of transportation facility.
ROADWAY TYPOLOGIES
State Highway – This classification is for Interstate 80, which serves high volumes of high-speed regional vehicle traffic, including automobiles and trucks. Bicycles and pedestrians are prohibited.
Auto Arterial – Auto Arterials are two - or four-lane roadways that serve high volumes of regional motor vehicle traffic including automobiles and trucks. These roadways prioritize vehicles and bicycle and pedestrian movements are secondary.
Auto Arterials have limited intersections and curb cuts, and they serve as primary connections between destinations both within and outside of the city. Transit riders are served on these roadways except along Giant Road. San Pablo Avenue, Giant Road, and San Pablo Dam Road also serve as truck routes. All Auto Arterials provide bicycle access; however, the higher design volumes on these roadways also require bicycle signage and painted arrows in Class III designations. On-street parking is generally not provided along Auto Arterials. Sidewalks are required on at least one side of the roadway.
Urban Arterial – Urban Arterials are similar in function to Auto Arterials, but different in character. They are two - or four-lane roadways that serve high volumes of regional motor vehicle traffic. However, they also provide access to adjacent
neighborhoods and pedestrian -intensive commercial areas, and they better accommodate bicycle and pedestrian traffic.
They provide primary connections within the city and have frequent intersection and points of access. The roadways include either a Class II or Class IV bike lane. Most importantly, Urban Arterials emphasize the pedestrian environment, in that they have continuous sidewalks with a minimum width of
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eight feet; a continuous row of street trees, and well - delineated sidewalks.
Mixed Use Boulevard – These roadways are located along the city’s central commercial corridors and accommodate
moderate to high volumes of through -traffic within and beyond the city. They provide access to retail, commercial, and high -intensity residential land uses while facilitating traffic to the freeway network and through the city. They are also key transit corridors for AC Transit bus service. Signal preemption for transit vehicles, bus stops/shelters, and, where appropriate, bus lanes, are provided. Other travel modes, including automobiles and bicycles, ar e
accommodated in the roadway, but if there are conflicts, transit has priority. Continuous Class II bike lanes are provided. Pedestrians in general have priority on these roadways, and particularly around major retail commercial nodes. Pedestrians are accommodated with minimum eight- foot sidewalks on both sides of the street, and amenities around bus stops (e.g., shelters, benches, lighting, etc.). There are continuous street trees and pedestrian-scale lighting, as well as well- delineated crosswalks, curb ramps, pedestrian refuges and actuated pedestrian signals where appropriate.
Avenue – Avenues function as collector streets, connecting Local Streets to Auto and Urban Arterials and Mixed -Use Boulevards. Avenues have moderate to high volumes of
vehicular traffic, and accommodate equally automobiles, bicycles, and pedestrians within the right-of-way. Transit use, if any, is incidental, and pedestrians are provided with continuous sidewalks (six -foot minimum width) on both sides of the street. On -street parking is allowed and encouraged.
Local Street – Automobiles, bicycles, and pedestrians are accommodated equally in the right-of-way. Transit use, if any, is incidental. Local streets accommodate low volumes of local traffic and primarily provide access to abutting properties.
On- street parking is provided and through -traffic is
discouraged. Traffic calming techniques to slow and
discourage through - automobile and truck traffic may be appropriate.
San Pablo contains a range of street types, from
auto-dominated state highways and multi-use
boulevards (top) to local streets (bottom) which
are more amenable to pedestrians and cyclists
EL
PORTAL DR
PARR BLVD
I 80
SAN PABLO AVE
GIANT RD
23RD ST
EL PORTAL DR
HILLTOP DR
SAN PABLO DAM RD
MARKET AVE
BROOKSIDE DR
SAN PABLO AVE
ROAD 20
RUMRILL BLVD
BROADWAY AVE
CHURCH LN
ROBERT H MILLER DR
MARKET ST
13TH ST
RICHMOND PKWY
CHURCH LN
RICHMOND PKWY
ROAD 20
SAN PABLO AVE
SAN PABLO AVE
HILLTOP DR
SAN PABLO AVE
21ST ST
DOVER AVE
VALE RD
20TH ST
STANTON AVE
PINE AVE
MINER AVE
19TH ST
AMADOR ST
EMERIC AVE
SUTTER AVE
12TH ST
RIVERS ST
HILLCREST RD
ROLLINGWOOD DR
SANFORD AVE
17TH ST
15TH ST
LAKE ST
RIDGE RD
22ND ST
14TH ST
18TH ST
BUSH AVE
11TH ST
CALIFORNIA AVE
WILLOW RD
JOHN AVE
BROOK WAY
TYLER ST
VAN NESS ST
PALMER AVE
ESPANOLA DR
DEVON WAY
ARUNDEL WAY
MANOR DR
POWELL ST
CHEVY WAY
MARIN AVE
ROAD 20
MASON ST
WILCOX AVE
13TH ST
STONE ST
GREENWOOD DR
KELLEY AVE
AVON LN
FOLSOM AVE
FORDHAM ST
CASTRO RD
MISSION AVE
PULLMAN ST
MORROW DR
ALPINE RD
MANCHESTER AVE
MAC ARTHUR AVE
DEL CAMINO DR
DOUGLAS ST
KIRK LN
BOWHILL LN
TRENTON BLVD
YUBA AVE
BRENTZ LN
16TH ST
LOVEGROVE ST
GLENLOCK ST
MORAGA ST
ACAPULCO DR
MERRITT AVE
PABLO VISTA AVE
MONTOYA AVE
MIFLIN AVE
COLIN ST
BANCROFT LN
VENTURA AVE
GLENN AVE
JOEL CT
OHARE AVE
BANK LN
GERALD AVE
RIDGE LN
ALFREDA BLVD
WYMAN ST
CASINO AVE
CONTRA COSTA AVE
MANZANILLA DR
POST AVE
RUMRILL DR
CARLFIELD ST
REGINA AVE
STANDARD AVE
MARELIA CT
RIVERSIDE AVE
VALENCIA WAY
MISSION BELL DR
CLARE ST
HUMBOLDT AVE
E VICTORIA CT
UNIVERSITY AVE
CONNECTICUT AVE
STONINGTON AVE
N ARLINGTON BLVD
BARBARA LN
FILLMORE ST
SHASTA AVE
COALPORT ST
MADRONE WAY
27TH ST
FRIEDA CT
CHESLEY AVE
23RD ST
RANDY LN
ALVARADO SQ
ALAN CT
BAKER ST
DODSON ST
MONTE BUENA DR
BROOKSIDE AVE
W VICTORIA CT
JUDITH CT
SHEFFIELD CT
BROOKHAVEN CT
MURRA CT
26TH ST
MUIR ST
RHEEM AVE
20TH ST
18TH ST
21ST ST
11TH ST
13TH ST
17TH ST
18TH ST
MISSION BELL DR
17TH ST
16TH ST
19TH ST
GLENN AVE
LAKE ST
BUSH AVE
15TH ST
16TH ST
18TH ST
19TH ST
15TH ST
22ND ST
21ST ST
POST AVE
19TH ST
19TH ST
MASON ST
14TH ST
14TH ST
YUBA AVE
15TH ST
22ND ST
MERRITT AVE
20TH ST
19TH ST
17TH ST
0 0.50.25
Miles
SOURCE: Contra Costa County, 2010; City of San Pablo, 2010; Dyett & Bhatia, 2010.
State Highway
Mixed Use Boulevard
Urban Arterial
Auto Arterial
Avenue
Local
Proposed Roadway
System
UNION PACIFIC RR
BURLINGTON NORTHERN SANTA FE RR
Planning Area
City Limits
Pedestrian Priority Zone
Green Street Overlay
Railroads
Figure 5-1
Major Transit Hub
Chapter 5: Circulation
5-7
Table 5.2-1 Transportation Facilities Matrix
Facility Transit Bicycles Pedestrians Trucks Automobiles State Highway X
Auto Arterial
Urban Arterial1
Mixed-Used Boulevard
Avenue
Local X
1 Transit has priority over bicycles on Urban Arterials, where conflicts exist.
Green Street Overlay – These streets comprise a network of pedestrian-intensive corridors as well as key access routes to commercial destinations and public facilities, specifically parks and open space. They are intended to have rows of continuous street trees providing shade on both sides of the street. The overlay applies to streets of all classifications.
Major Transit Hub – This is a transfer point where high volume transit lines intersect. It is located at Contra Costa College near the triangle of Rumrill Boulevard, Broadway Avenue, El Portal Drive, and San Pablo Avenue in the Pedestrian Priority Zone.
Pedestrian Priority Zones – These are zones in which high volumes of pedestrian traffic are encouraged and
accommodated along the sidewalk. They include portions of San Pablo Avenue and 23rd Street and mixed-use zones around neighborhood centers, the College, schools and other public facilities. Sidewalks should be a minimum of eight feet wide with pedestrian amenities. Building frontages should provide a high level of pedestrian interest, with ample windows, doors and architectural articulation. Pedestrian crossings should have a high priority at intersections. In some locations, well- protected mid-block crosswalks may be appropriate.
= Dominant
= Accommodated
= Incidental
X = Prohibited
San Pablo General Plan 2035
5-8
It is important that both drivers and pedestrians clearly see the crossings. Marked crosswalks guide pedestrians and alert drivers to a crossing location
PLANNED IMPROVEMENTS TO ACCOMMODATE
BUILDOUT
To achieve a balance between existing and future land use and traffic carrying capacity, improvements to the roadway
network are planned. Major street improvements planned or programmed for San Pablo are described in Table 5.2 -2 and shown in Figure 5-2.
Table 5.2-2 Major Transportation Improvements
No. Project Location and Description
1 ADA Traffic Signal &
Crosswalk Modifications
Traffic signal upgrades, crosswalk modifications and curb ramp upgrades to support accessibility.
2 Bicycle and Pedestrian
Corridor Study
The San Pablo Bicycle and Pedestrian Corridor Study analyzes approximately 6 miles of key transportation corridors, gathers community feedback and produces concept designs for key segments identified in the City’s 2017 Bicycle and Pedestrian Master Plan. 3 Broadway Avenue Cycletrack Design and construction of bicycle and pedestrian safety improvements on Broadway Avenue, between 11th Street and San Pablo Avenue. 4 Church Lane Bridge: Safety
Improvements at San Pablo
Creek
Design and construction of bicycle and pedestrian safety improvements on Church Lane, between Willow Road and El Portal Drive, including:
• Dedicated pedestrian pathway on the San Pablo Creek bridge, with associated bicycle lane improvements
• Closure of the bicycle lane gap on Church Lane at El Portal Drive • Re-striping bicycle lanes on Church with improved signage and striping • Pedestrian crossing improvements at St. Joseph Driveway
Chapter 5: Circulation
5-9
Table 5.2-2 Major Transportation Improvements
No. Project Location and Description
5 Church Lane Traffic
Calming
Design and construction of Safe Routes to School traffic calming recommendations on Church Lane, between Market Avenue and Chattleton Lane.
6 Citywide Slurry
Seal Project
Provide slurry sealing throughout the City to improve surface road conditions, Every year the City selects key areas for pavement repair, based on the pavement quality and the level of use of the street. 7 Church/Willow Highway
Safety Improvement
Program
Pedestrian crossing enhancements and general intersection improvements at a high crash rate intersection. Enhancements include improved pavement marking and signs, illumination, raised median islands and rectangular rapid flashing beacons (RRFBs).
8 Class 3 (“sharrow”) bicycle
facility installation
Class 3 (“sharrow”) bicycle facility striping on approximately 6 miles of roadway.
10 Contra Costa College Mobility
Hub Project
The Contra Costa College Mobility Hub Plan includes conceptual plans for infrastructure improvements for the broader area surrounding Contra Costa College in support of creating a mobility hub with transit-oriented development.
11 El Portal Drive Cycletrack Design and construction of bicycle and pedestrian safety improvements on El Portal Drive, between San Pablo Avenue and Church Lane. 12 El Portal & Fordham
Retaining Wall Stabilization
Stabilize retaining wall along El Portal & Fordham, which serves as a major access point to/from I-80.
13 El Portal/Mission Bell
Highway Safety Improvement
Program
Pedestrian crossing enhancements and general intersection improvements at a high crash rate intersection. Enhancements include improved pavement marking and signs, illumination, raised median islands and rectangular rapid flashing beacons (RRFBs).
14 Giant Road Bridge
Maintenance
Repair existing three-lane bridge over San Pablo Creek at Parr Boulevard to Caltrans bridge standards.
15 Lake Street Traffic
Calming
Design and construction of Safe Routes to School traffic calming recommendations on Lake Street, between Broadway Avenue and 10 th Street.
16 Local Roadway Safety Plan Includes analysis of bicycle and pedestrian collision date to identify crash trends, causes of fatalities and severe injuries; analysis of how different roadway and bicycle facility types affect cyclist and pedestrian safety, involves stakeholder collaboration.
17 Market Avenue Traffic
Calming
Design and construction of Safe Routes to School traffic calming recommendations on Market Avenue, between Church Lane and Rumrill Boulevard.
18 Road 20 Cycletrack Design and construction of bicycle and pedestrian safety improvements on Road 20, between San Pablo Avenue and El Portal Drive.
19 Rumrill Boulevard
Complete Streets
Develop “complete street” that encourages multiple modes of transportation and supports future growth and active living; increased safety with improved lighting and additional pedestrian crosswalks; improved water quality, reduce minor flooding, and increase greening along the corridor; increase sustainability and economic vitality of the area.
San Pablo General Plan 2035
5-10
Table 5.2-2 Major Transportation Improvements
No. Project Location and Description
20 Safe Routes to School
Improvements
Design and construction for striping, signage, sidewalk and crosswalk improvements based on the Safe Routes to School Master Plan 21 San Pablo Ave Bicycle
Lane Gap Closures
Design and construction of the San Pablo Avenue bicycle lane gaps (from Glenn Avenue to Evans Avenue; 23rd Street to Rivers Street; at Church Lane)
22 San Pablo Ave Bridge
Replacement and
Intersection
Improvement Project
Bridge replacement and intersection reconstruction at San Pablo Avenue, 23rd Street and Road 20. This is a multi-year project to replace a structurally deficient bridge and to improve safety and flow of motorists, transit, bicyclists, and pedestrians through the intersection. 23 San Pablo Dam
Road/Hillcrest/Morrow
Improvements
Design and construction of bicycle and pedestrian safety improvements on San Pablo Dam Road (between Amador Street and the existing bicycle lanes, in addition to pavement repairs on San Pablo Dam Road, Hillcrest Road and Morrow Drive.
24 Sidewalk Gap Closures New sidewalks to close approximately 7-9 miles of gap closures. 25 Sustainable TOD Master
Plan
The City’s Sustainable Transit Oriented Development (TOD) Master Plan will create a strategy and guiding policies for future TOD in San Pablo.
These efforts are intended to support regional housing and local/statewide greenhouse-gas reduction goals.
The project identifies a citywide TOD priority area, a community TOD vision, concept designs for areas near transit, and recommendations for policies and strategies to facilitate TOD implementation. 26 Sutter Avenue Urban
Greening
Historically, Sutter Avenue has been a high-flood risk area in San Pablo, as a result of a lack of stormwater infrastructure and flat topography.
Additionally, Sutter Avenue lacks pedestrian facilities and has had many resident complaints of unsafe traffic speeds. In order to help reduce flooding in this area with limited stormwater infrastructure, the proposed green street retrofits would incorporate different types of green infrastructure including bioswales and suspended pavement systems. The green infrastructure facilities would be designed to also help slow traffic speeds, improve pedestrian safety, and support street tree growth. 27 23rd Street Traffic
Calming
Design and construction of Safe Routes to School and additional traffic calming recommendations on 23rd Street, between San Pablo Avenue and City limits, including:
• Re-striping the bicycle lanes and adding protective elements where feasible
• Enhancing crosswalks throughout the corridor
• Closure of the bicycle lane gap at Market Avenue
28 Yuba Avenue
Modification
Design and construction of Yuba Avenue traffic calming recommendations (e.g., possible one-way configuration) to assist with school traffic flow.
Note: ROW = Right-of-Way acquisition.
Sources: City of San Pablo Capital Improvement Plan 2022-2027, and Public Works Department project listings at https://www.sanpabloca.gov/879/Public-Works-Projects
nm
nm
nm
nm
nm
nm
nm
nm
§¨¦80
City of
Richmond
Bayview
Elementary
School
Lake
Elementary
School
Helms
Middle School
Dover
Elementary
School
St Paul
School
Salesian College
Preparatory
High School
Riverside
Elementary
School
Downer
Elementary
School
City of
Richmond
21ST ST
11TH ST
SAN PABLO AVE
17TH ST
VALE RD
DOVER AVE
20TH ST
STANTON AVE
PINE AVE
MINER AVE
19TH ST
16TH ST
15TH ST
AMADOR ST
RIVERS ST
SUTTER AVE
EMERIC AVE
12TH ST
14TH ST
HILLCREST RD
ROLLINGWOOD DR
13TH ST
SANFORD AVE
LAKE ST
RIDGE RD
CALIFORNIA AVE
22ND ST
18TH ST
BUSH AVE
JOHN AVE
WILLOW RD
ALPINE RD
BROOK WAY
PALMER AVE
TYLER ST
ESPANOLA CT
VAN NESS ST
POWELL ST
ARUNDEL WAY
DEVON WAY
MARIN AVE
MASON ST
WILCOX AVE
STANDARD ST
POST AVE
CHEVY WAY
ALFREDA BLVD
STONE ST
BAYO VISTA AVE
KELLEY AVE
FORDHAM ST
GREENWOOD DR
MANOR DR
YUBA AVE
MANCHESTER AVE
PULLMAN ST
FOLSOM AVE
MISSION AVE
AVON LN
VILLA DR
MISSION BELL DR
MACARTHUR AVE
MORROW DR
BEAU RIVAGE
BOWHILL LN
DOUGLAS ST
MIFLIN AVE
TRENTON BLVD
BONITA RD
MERRITT AVE
GLENLOCK ST
DEL CAMINO DR
FILLMORE ST
PABLO VISTA AVE
LOVEGROVE AVE
GLENN AVE
COLIN ST
ACAPULCO DR
MARELIA CT
BANCROFT LN
MONTOYA AVE
VENTURA AVE
ABELLA CIR
CLARE ST
JOEL CT
GERALD AVE
EVENS AVE
MANZANILLA DR
CARLFIELD ST
CORTE ST
OHARE AVE
CONTRA COSTA AVE
CASINO AVE
RUMRILL RD
WYMAN ST
RIVERSIDE AVE
REGINA AVE
BARRANCA ST
HUMBOLDT ST
E VICTORIA CT
SHASTA AVE
HARBORVIEW AVE
CLEMENT AVE
CONNECTICUT AVE
CHATTLETON LN
UNIVERSITY AVE
BARBARA LN
KIRK LN
JEAN CT
MADRONE WAY
WESTGATE CIR
W VICTORIA CT
FRIEDA CT
BROOKSIDE AVE
MONTE BUENA ST
DODSON ST
JUDITH CT
WANLASS AVE
DRAKE WAY
LARCHMONT LN
18TH ST
19TH ST
20TH ST19TH ST
BUSH AVE
15TH ST
15TH ST
21ST ST
18TH ST
SHASTA AVE
GLENN AVE
17TH ST
MERRITT AVE
RIVERSIDE AVE
14TH ST
18TH ST
DOVER AVE
19TH ST
22ND ST
MASON ST
15TH ST
16TH ST
17TH ST
POST AVE
LAKE ST
20TH ST
21ST ST
RIVERS ST
YUBA AVE
19TH ST
22ND ST
16TH ST
17TH ST
MINER AVE
ROSE ARBOR A VE
Bayview A ve
BOLDUC CT
CAPITO
LH
ILL AVE
W ESTVIEW
PL
N
ARLINGTONBLVD
H
ILLCREST
RD
MI
FFIN
AVE
EL PORTAL DR SAN PABLO DAM RD
ROAD 20
ROAD 20
BROOKSIDE DR
MARKET AVE
MARKET ST CHURCH LN
CHURCH LN
23RD ST
VALENCIA WAY
BROADWAY
ROAD 20 RUMRILL BLVD
CHESLEY AVE
RICHMOND PKWY
RICHMOND PKWY
City
Hall
Contra Costa
College
John
Herbert
Davis Park
San Pablo
Lytton
Casino
St. Joseph
Cemetery &
Funeral Center
Wanlass
Park
Rheem Creek
San Pablo Creek
Wildcat Creek
San Pablo Creek
Wildcat Cr eek
San Pablo Creek
BURLINGTON NORTHERN SANTA FE RR
UNION PACIFIC RR
Broadway/El Portal
Safe Mobility
Improvements
Giant Road
Pavement
Rehabilitation
Giant Road
Bridge
Maintenance
Rumrill Boulevard
Complete Streets
Project
Sutter Ave
Urban Greening
Wildcat Creek
Trail Crossing
Improvement
School Zone
Traffic Safety
Improvements**
San Pablo Ave Bridge
Replacement Project
¬«8
Church Lane
Bike and Pedestrian
Safety Improvement
¬«1
I80/San Pablo
Dam Rd Interchange
Reconstruction
Phase 2
¬«8
¬«5
¬«9
¬«3 ¬«7
¬«2
¬«6
¬«4
¬«10
¬«1
SOURCE: Kittleson, 2021; City of San Pablo, 2024;
Contra Costa County GIS, 2024; Dyett & Bhatia, 2024
0 0.2 0.40.1
Miles
J:\GISData\581_SanPablo_GP\GIS\Projects\GeneralPlan\General Plan Map Updates\Figure 5-2 Planned Improvements.mxd Figure 5-2:
nm Schools
1,000 ft Radius for Schools**
City Limits
Sphere of Influence
Major Roads
Minor Roads
Railroads
Planned Improvements (see Table)*
Planned Improvements
¬«#
** Note: Traffic calming measures, sidewalk repairs, curb ramp installations, crosswalk lights, signage etc in the school zone generally 1,000 ft around existing schools
Rectangular Rapid Flashing Beacon Crosswalk Project
*Note: Citywide Projects (See Table for details)
¬«11
¬«12 Local Roadway Safety Plan
San Pablo General Plan 2035
5-12
STREET DESIGN STANDARDS
Street design standards, illustrated in Figure 5 -3, establish typical street sections for each roadway classification. Details include sidewalks, bike lanes, travel lanes, medians/left turn lanes (LTL), two -way left turn lanes (TWLTL), and parking areas. These street sections are intended to:
• Provide guidance for a system of complete streets that will implement General Plan policies.
• Ensure that streets have appropriate facilities and dimensions to fulfill their intended function, consistent with the General Plan, and to support multiple modes of travel.
• Ensure that streets have adequate capacity, while minimizing width to create strong neighborhood character.
• Create a system of sidewalks and bikeways which promote safe walking and bicycle riding for transportation and
recreation.
All street designs are subject to review and approval by the Planning Commission, City Council, Planning Division and Public Works Department.
Figure 5-3 Typical Street Sections
Chapter 5: Circulation
5-13
San Pablo General Plan 2035
5-14
Chapter 5: Circulation
5-15
San Pablo General Plan 2035
5-16
5-17
Chapter 5: Circulation
AVERAGE DAILY TRAFFIC
Table 5-3 illustrates existing Average Daily Traffic (ADT) volumes at selected locations. The ADT for these locations is provided in Table 5-3. Data from 2016 and 2022 is presented to characterize conditions before and after the COVID -19
pandemic, which changed regional and local travel patterns as more people work ed from home some or all of the time.
VEHICLE MILES TRAVELED
In 2013, Governor Brown signed Senate Bill (SB) 743
(Steinberg), which created a process to change the way that transportation impacts are analyzed under the California Environmental Quality Act (CEQA). Specifically, SB 743
amended the CEQA guidelines to s tate that automobile delay metrics (i.e., level of service or LOS) is no longer considered to be a significant impact under CEQA. The Governor’s Office of Planning and Research (OPR , now known as the Governor’s Office of Land Use and Climate Innovation ) and the California Natural Resources Agency certified and adopted changes to the CEQA Guidelines that identify Vehicle Miles Traveled (VMT) as the most appropriate metric to evaluate a project’s transportation impacts. In 2018, OPR released a “Technical Advisory” containing non -regulatory methodologies and
thresholds for VMT. While LOS can no longer be used as the basis for determining transportation impacts under CEQA, the metric may still be useful for transportation planning purposes.
Table 5.2-3: Average Daily Traffic (ADT) Volumes for Select Locations
San Pablo General Plan 2035
5-18
In 2020, Contra Costa County released Transportation Analysis Guidelines (TAG) to aid in the preparation of traffic analysis and establish a uniform approach to evaluate impacts on the County transportation system. VMT measures the number of miles traveled during a specified time within a specific region.
VMT is estimated using the Contra Costa Transportation
Authority ( CCTA) model and is evaluated either on a per resident, per employee, or per service population (resident population plus employment) basis.
Table 5-4 presents VMT information from 2020 for multiple cities in Contra Costa County. San Pablo VMT per resident is about half of the County average and the VMT per employee is also less than the County average. San Pablo VMT per resident and per employee are also both less than the overall Bay Area Average VMT. These VMT estimates indicate that San Pablo is relatively accessible to key d estinations and job centers, which contributes to a more efficient VMT for the area. San Pablo VMT per employee is not ably higher than VMT per resident.
According to data from the U.S. Census, 86.9 percent of people employed in the City live elsewhere and commute to San Pablo for work, primarily in single occupant vehicles.
Further, nearly
25 percent of people employed in the City commute more than 25 miles each way, which contributes to the higher VMT per employee metric. Creating more housing in San Pablo for those who work in the community can help to reduce VMT per
employee, and creating more local jobs can help reduce total VMT per capita.
Table 5.2-4: 2020 San Pablo VMT Metrics
1 5-19
Chapter 5: Circulation
Table 5.2-4: 2020 San Pablo VMT Metrics
Recently Adopted Transportation Plans
The City has completed a number o f transportation planning efforts over the last decade, with scopes that range from specific to city-wide.
Bicycle and Pedestrian Corridor Study (2022)
The San Pablo Bicycle and Pedestrian Corridor Study analyzed approximately six miles of key transportation corridors, gathered community feedback, and produced concept designs.
These corridors were identified for future study in the City’s 2017 Bicycle and Pedestrian Master Plan because they
represent key opportunities to improve pe destrian and
bicyclist accessibility and safety. The study included analysis of eight potential bikeway segments and two potential shared - use paths, with a focus on parking, tra ffic and/or other constraints. The study produced a concept design, feasibility analysis, and cost estimates for each segment.
Local Road Safety Plan (2023)
The Local Road Safety Plan (LRSP) provides a framework for organizing stakeholders to identify, analyze, and prioritize roadway safety improvements on local roads. The LRSP
San Pablo General Plan 2035
5-20
analyzed data from a range of sources to identify bicycle, pedestrian and vehicle incidents and collisions, as well as to identify other traffic concerns. Starting in mid -2022, the LRSP is required for the City to be eligible to apply for Highway Safety Improvement Program (HSIP) funds for safety
improvement projects. The 2023 LRSP included: an analysis of bicycle and pedestrian collision data to identify crash trends, causes of fatalities, and severe injuries; an analysis of how different roadway and bicy cle facility types affect cyclist and pedestrian safety; and stakeholder collaboration to improve roadway safety.
Contra Costa College (CCC) Mobility Hub Plan (2023)
The City of San Pablo, sponsored by Contra Costa
Transportation Authority’s (CCTA’s) Measure J
Transportation for Livable Communities (TLC) Program,
conducted the Contra Costa College Mobility Hub planning study (“Study”) to identify challenges and opportu nities to create a well-rounded multimodal hub in the vicinity of Contra Costa College, and to develop a set of recommendations to enhance mobility and sense of place for the existing and future residents and users of the area. The Study Area consists of t he CCC campus, the area north of El Portal Drive, including the Moraga Road -Castro Road loop, the College Center Shopping Plaza, and the commercial area along San Pablo Avenue
between Road 20 and Rivers Street. The Study reviewed and incorporated the City’ s visions as stated throughout the most recent guiding land use development and transportation policy documents. The Study findings support the cooperative
transportation planning efforts for the surrounding area, accommodating the increased mobility needs and growing population generated by the planned future transit -oriented development (TOD).
Sustainable Transit Oriented Development (TOD) Master
Plan (2024)
The City’s Sustainable TOD Master Plan supports local and statewide sustainable transportation goals and ongoing efforts to integrate and improve development and transit service. It includes analysis and recommendations to facilitate equitable and climate-resilient TOD in San Pablo. The Master Plan builds on the existing condition and context of San Pablo, planning work that is currently underway, strategic direction, input from stakeholders and the public, and best practices in the field of transit-oriented community and development planning.
5-21
Chapter 5: Circulation
GUIDING POLICIES
Overall Transportation System
C-G-1 Develop a transportation system that meets the
needs of all segments of the community, including
residents, businesses, visitors, and the region.
C-G-2 Protect the character of local residential streets.
C-G-3 Ensure that new development pays its fair share of the costs of new and improved transportation
facilities.
IMPLEMENTING POLICIES
Overall Transportation System Planning
C-I-1
C-I-2
Design and operate city streets based on a
“Complete Streets” concept that enables safe,
comfortable, and attractive access and travel for
pedestrians, bicyclists, motorists, and transit users
of all ages and abilities.
Complete Streets create a sense of place and
improve social interaction, while generally
improving the values of adjacent property. This
policy is consistent with the California Complete
Streets Act of 2008 (AB 1358) in September 2008.
Adopt a Complete Streets Policy and Develop
Complete Streets Guidelines in accordance with
the Metropolitan Transportation Commission’s
Complete Street guidance for incorporation into
General Plans.9
On and off-street Parking Management
C-I-3 Ensure that public right -of-way improvement
designs are consistent with the character of each
neighborhood.
C-I-4 Continue to work with the Public Safety
Committee of the San Pablo City Council in the
review and recommendation of public right -of-
way safety improvements.
9 San Pablo General Plan 2035
5-22
C-I-5 Develop Neighborhood Traffic Calming
Guidelines (including traffic calming devices
such as signage, curb extension, chicanes,
neighborhood traffic circles, etc.) and
implement these improvements as needed
and appropriate in existing neighborhoods.
Measurement Standards
C-I-6 Require proposed developments meeting trip
generation thresholds to study the LOS
impacts of the development and provide
appropriate improvements to lessen their
impacts. Engineering D ivision to approve
study methodology.
C-I-7 Require proposed developments meeting
CEQA thresholds to provide appropriate
mitigation measures to lessen their Vehicle
Miles Traveled ( VMT). VMT study
methodology should follow the CCTA
Implementation Guide and VMT limits.
C-I-8 Schedule public transportation improvement
projects in the Capital Improvement Program
(CIP).
The City will continue to pay for street
improvements through a combination of CIP funds,
State and Federal grants, for improvements made
in conjunction with private land developments, and
other funds, as available.
5.3 Bicycle and Pedestrian Circulation
BICYCLE CIRCULATION
The Proposed Bicycle System, shown in Figure 5-4, is a critical component of the circulation network. It shows both bicycle routes and improved signage to improve access and safety. It provides bicyclists with a complete network of continuous and safe access to all parts of the city, and particularly to local destinations. These designations support the CCTA
Countywide Bicycle and Pedestrian Plan bicycle network, specifically along San Pablo Avenue, which is identified as key north-south multi- jurisdictional connection.
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§¨¦80
City of
Richmond
City of
Richmond
21ST ST
11TH ST
SAN PABLO AVE
17TH ST
VALE RD
DOVER AVE
20TH ST
STANTON AVE
PINE AVE
MINER AVE
19TH ST
16TH ST
15TH ST
AMADOR ST
RIVERS ST
SUTTER AVE
EMERIC AVE
12TH ST
14TH ST
HILLCREST RD
ROLLINGWOOD DR
13TH ST
SANFORD AVE
LAKE ST
RIDGE RD
CALIFORNIA AVE
22ND ST
18TH ST
BUSH AVE
JOHN AVE
WILLOW RD
ALPINE RD
BROOK WAY
PALMER AVE
TYLER ST
ESPANOLA CT
VAN NESS ST
POWELL ST
ARUNDEL WAY
DEVON WAY
MARIN AVE
MASON ST
WILCOX AVE
STANDARD ST
POST AVE
CHEVY WAY
ALFREDA BLVD
STONE ST
BAYO VISTA AVE
KELLEY AVE
FORDHAM ST
GREENWOOD DR
MANOR DR
YUBA AVE
MANCHESTER AVE
PULLMAN ST
FOLSOM AVE
MISSION AVE
AVON LN
VILLA DR
MISSION BELL DR
MACARTHUR AVE
MORROW DR
BEAU RIVAGE
BOWHILL LN
DOUGLAS ST
MIFLIN AVE
TRENTON BLVD
BONITA RD
MERRITT AVE
GLENLOCK ST
DEL CAMINO DR
FILLMORE ST
PABLO VISTA AVE
LOVEGROVE AVE
GLENN AVE
COLIN ST
ACAPULCO DR
MARELIA CT
BANCROFT LN
MONTOYA AVE
VENTURA AVE
ABELLA CIR
CLARE ST
JOEL CT
GERALD AVE
EVENS AVE
MANZANILLA DR
CARLFIELD ST
CORTE ST
OHARE AVE
CONTRA COSTA AVE
CASINO AVE
RUMRILL RD
WYMAN ST
RIVERSIDE AVE
REGINA AVE
BARRANCA ST
HUMBOLDT ST
E VICTORIA CT
SHASTA AVE
HARBORVIEW AVE
CLEMENT AVE
CONNECTICUT AVE
CHATTLETON LN
UNIVERSITY AVE
BARBARA LN
KIRK LN
JEAN CT
MADRONE WAY
WESTGATE CIR
W VICTORIA CT
FRIEDA CT
BROOKSIDE AVE
MONTE BUENA ST
DODSON ST
JUDITH CT
WANLASS AVE
DRAKE WAY
LARCHMONT LN
18TH ST
19TH ST
20TH ST19TH ST
BUSH AVE
15TH ST
15TH ST
21ST ST
18TH ST
SHASTA AVE
GLENN AVE
17TH ST
MERRITT AVE
RIVERSIDE AVE
14TH ST
18TH ST
DOVER AVE
19TH ST
22ND ST
MASON ST
15TH ST
16TH ST
17TH ST
POST AVE
LAKE ST
20TH ST
21ST ST
RIVERS ST
YUBA AVE
19TH ST
22ND ST
16TH ST
17TH ST
MINER AVE
ROSE ARBOR A VE
Bayview A ve
BOLDUC CT
CAPITO
LH
ILL AVE
W ESTVIEW
PL
N
ARLINGTONBLVD
H
ILLCREST
RD
MI
FFIN
AVE
EL PORTAL DR SAN PABLO DAM RD
ROAD 20
ROAD 20
BROOKSIDE DR
MARKET AVE
MARKET ST CHURCH LN
CHURCH LN
23RD ST
VALENCIA WAY
BROADWAY
ROAD 20 RUMRILL BLVD
CHESLEY AVE
RICHMOND PKWY
RICHMOND PKWY
City
Hall
Contra Costa
College
John
Herbert
Davis Park
San Pablo
Lytton
Casino
St. Joseph
Cemetery &
Funeral Center
Wanlass
Park
Rheem Creek
San Pablo Creek
Wildcat Creek
San Pablo Creek
Wildcat Cr eek
San Pablo Creek
BURLINGTON NORTHERN SANTA FE RR
UNION PACIFIC RR
SOURCE: City of San Pablo Bicycle & Pedestrian Plan, 2017; Kittleson, 2021; City of San Pablo, 2021; Contra Costa County GIS, 2021; Dyett & Bhatia, 2021
0 0.2 0.40.1
Miles
Existing and Recommended
Bicycle Routes
J:\GISData\581_SanPablo_GP\GIS\Projects\GeneralPlan\General Plan Map Updates\Figure 5-4 Existing and Recommended Bicycle Routes.mxd Figure 5-4:
City Limits
Sphere of Influence
Major Roads
Railroads
Existing Bikeways
Class I - Shared Use Path
Class II - Bike Lane
Class III - Bike Route or Bike Boulevard
Class IV - Separated Bikeway
Proposed Bikeways
!( !( !( !( !( !( !( Class I - Shared Use Path
!( !( !( !( !( !( !( Class II - Bike Lane
!( !( !( !( !( !( !( Class III - Bike Route or Bike Boulevard Proposed Studies
!( !( !( !( !( !( !( Shared Use Path Study
!( !( !( !( !( !( !( Corridor Study (Class II, III or IV) San Pablo General Plan 2035
5-24
The Bicycle System includes four types of bikeway
classifications, consistent with Chapter 1000 of the Caltrans Highway Design Manual:
• Class I : Multi-use paths provide a completely separated right-of-way for the exclusive use of bicycles and
pedestrians.
• Class II: Bike lanes provide an exclusive space for bicyclists in the roadway and are established by striping and
markings on the roadway surface .
• Class III : Bike routes are designated with pavement
marking and/or signage to indicate a shared lane
environment between bicyclists and vehicles.
• Class IV : Separated bike lanes provide an exclusive space for bicyclists that is physically separated from motor
vehicle traffic by a vertical element and that is distinct from the sidewalk.
San Pablo currently has a limited number of bicycle facilities.
Class I bike paths are found along the northern edge of John Hubert Davis Park , and along Wildcat Creek between Church Lane and Vale Road . Class II bike lanes are found along San Pablo Avenue between 23rd Street and Ev ans Avenue , and along Rumrill Boulevard between Costa Avenue and Sanford Avenue. Class IV bike lanes are found along El Portal Drive between Rollingwood Drive and Fordham Street, and along Rumrill Boulevard between Sanford Avenue and San Pablo Avenue.
The General Plan will ensure that the major destinations within the City (in particular, Contra Costa College and the Mixed Use Boulevards) are well -served by bike infrastructure. Class II bike lanes will be five feet in width with an additional one-foot buffer strip that heightens the visibility and safety of the bike lane. Class IV bike lanes will have a similar composition but with the addition of a vertical element of protection from vehicles. The City will also ensure that Urban Arterials and Avenues throughout the city that do not include Class II or IV bike lanes are designated as Class III bikeways , with an emphasis on signage and clear, frequent painted markings. All local streets not marked on this map will effectively serve as Class III bike routes but will not require a n emphasis on signage. The Plan also ensures that Class I bike facilities are well-marked so that access to and from roadways is obvious and safe.
5-25
Chapter 5: Circulation
Bicycle and Pedestrian Master Plan (2017)
This plan was developed to help the City implement its
General Plan by providing more detailed analysis and
community input about bicycle and pedestrian opportunities in the area. This plan provides the vision, goals, and strategies needed to support incr eased walking, bicycling, and other active modes of transportation in San Pablo. The purpose of the plan was to identify existing routes and gaps in routes or sidewalks that are used by bicyclists and pedestrians for travel or recreational activity, and to be better able to compete for funds to invest in or enhance additional infrastructure.
Safe Routes to School Master Plan (2022)
The 2017 San Pablo Bicycle and Pedestrian Master Plan (BPMP) recommended that the City of San Pablo (City) establish a Safe Routes to School program. The purpose of the Safe Routes to School Master Plan (SR2S Plan) was to identify ways to make walking and bicycling safer, more comfortable, and more enjoyable for students, families, and school staff in San Pablo.
During the SR2S Plan process, the Project Team evaluated safety and accessibility conditions around ten schools in San Pablo and made engineering, education, encouragement, and engagement recommendations. This evaluation was centered around virtual and in -person walk audits that allowed
students, families, teachers, and principals to document their experiences walking and bicycling to school. In resp onse to the COVID-19 pandemic, and to support virtual walk audits, the Project Team created an online engagement tool. The Project Team also implemented a temporary demonstration “pilot” of two engineering recommendations.
PEDESTRIAN CIRCULATION
Pedestrian flow patterns show similarities to the vehicular traffic stream. Speed, flow rate, and density are interrelated.
Capacity and density for pedestrians are dependent on width of the walking facility and the type of walking facility (e.g., walkways, crosswalks, and street corners). For crosswalks, pedestrian capacity and waiting time is affected by turning vehicles, signal timing, pedestrian/vehicle right -of-way laws, and pedestria n platoons meeting in the middle of the street.
Street corners at signalized intersections are holding areas as well and can be a critical location in the sidewalk network.
San Pablo General Plan 2035
5-26
While sidewalk capacity is not an issue, in general, all areas should be designed to a scale that accommodates pedestrians .
Street improvements in areas within the City that currently have undersized or no pedestrian facilities should be made a priority, so that the pedestrian system will be better connected and safer.
The new mixed-use centers shown on the Land Use Diagram and the areas marked as “Pedestrian Priority Zones” in Figure 5 -1 should be designed with pedestrian comfort and access as a priority. In these areas, sidewalks should be a minimum of eight feet in width to accommodate increased flows. A variety of pedestrian amenities should also be provided near transit stops and adjacent to medium and higher density residential areas. The City should refer to the Safe Routes to School Master Plan and the Bicycle and Pedestrian Corridor Study for guidance on priority routes to make improvements to pedestrian safety and comfort.
GUIDING POLICIES
C-G-4 Develop a safe and comprehensive bicycle and
pedestrian network.
IMPLEMENTING POLICIES
C-I-9 Expand and maintain a safe and
comprehensive bicycle system that connects
the City’s neighborhoods to regional bicycle
routes.
C-I-10 Acquire land for new bicycle routes along
Wildcat Creek, as shown in Figure 5-5, only if
landowners are willing to sell such land or
provide easements for public access. If
landowners object to route designations, seek
alternative routes and amend Bicycle Map
accordingly.
C-I-11 Require the provision of bicycle parking and
related facilities in new employment -
generating development to facilitate multi -
modal commute choices.
The City will continue to enforce the Zoning
Ordinance requirements for provision of secure
bicycle parking facilities at large commercial and
industrial employer sites, including racks and lockers
that are integrated into the overall site and building
design.
5-27
Chapter 5: Circulation
C-I-12 Evaluate required improvements for the
following routes:
• For bicyclists, evaluate the routes shown on
Figure 5-5, to determine necessary
improvements.
• For pedestrians, evaluate streets within
Pedestrian Priority Zones (e.g., San Pablo
Avenue, 23rd Street). As shown on Figure 5-1,
to determine necessary improvements.
C-I-13 Implement the City’s adopted Bicycle and
Pedestrian Master Plan (2017), Bicycle and
Pedestrian Corridor Study (2022), Safe Routes
to School Master Plan (2022), and Local Road
Safety Plan (2022). Seek funding from various
active transportation sources to fund and
implement the designs recommended in the
Bicycle and Pedestrian Corridor Study.
C-I-14 Create physical improvements to streets and
neighborhoods that make walking and
bicycling safer, more comfortable, and more
convenient.
C-I-15 Generate enthusiasm and increased walking
and bicycling by students through events,
activities, and programs.
C-I-16 Provide students and the community with the
skills to walk and bicycle safely, educating
them about benefits of walking and bicycling,
and teaching them about the broad range of
transportation choices.
C-I-17 Host regular walk audits with school
stakeholders to identify popular walking
routes and safety issues
C-I-18 Develop Neighborhood Traffic Calming
Guidelines.
C-I-19 Update the City’s ADA Transition Plan
C-I-20 Implement a Traffic Safety Marketing and
Outreach Campaign
C-I-21 Work with WCCUSD to implement a crossing
guard program at each San Pablo school.
San Pablo General Plan 2035
5-28
C-I-22 Implement a Bicycle and Pedestrian Safety
Education Program
Instructional classes for youth and adults teach the
rules of the road, how to safely ride a bike in different scenarios, and how to safely navigate streets. Explore
partnership opportunities with Contra Costa
College, and Bike East Bay to develop after -school
education and bicycle maintenance programs. Seek
support from the San Pablo Police Department to
offer educational school assemblies.
C-I-23 Implement a Progressive Safety Enforcement
Program
Police officers encourage safe behavior by all road users, focusing on the most common or serious traffic
violations. Enforcement is conducted in three phases:
first, educate and raise community awareness of the
problem; second, warn people of actions that will be
taken if violations occur and why; and third, issue
citations after the warning period has expired.
C-I-24 Conduct Pre/Post Studies of New
Infrastructure
Collect data at key locations prior to installing new
pedestrian or bicycle infrastructure, and again after
installation, to determine its impact on users.
C-I-25 Bicycle facility design will follow the California Manual on Uniform Traffic Control Devices
(MUTCD).
C-I-26 The City will prioritize the development of
Class I (shared -use paths) and Class IV
(separated and protected) bicycle facilities.
C-I-27 Complete and enhance the pedestrian network
with an interconnected system of walkways,
continuous sidewalks on both sides of the street,
and pedestrian crossings.
C-I-28 Establish a Citywide Safe Routes to School
(SR2S) Program.
Following the recommendations of the Bicycle and
Pedestrian Master Plan (2017) and the Safe Routes
to School (SR2S) Master Plan (2022), the City will
coordinate with Contra Costa Health Services to
5-29
Chapter 5: Circulation
establish a city-led SR2S program, to ensure that San
Pablo schools receive regular, dedicated programming
and that the program is sustainable in the long-term.
C-I-29 To maintain walkability and pedestrian safety,
consider reducing curb -to-curb road widths and
employing roadway design features such as
islands, pedestrian refuges, and pedestrian count-
down signals.
The City will establish priorities for pedestrian
connections to and from retail and commercial services, transit stations and stops, public gathering areas, schools, and parks.
C-I-30 Provide pedestrian facilities that are accessible to persons with disabilities and ensure that roadway
improvement projects address accessibility and
universal design concepts.
The City will implement standards and requirements
in accordance with the Americans with Disabilities
Act (ADA) for circulation access (such as ramp
improvements, curb cuts, audible traffic signals, etc.).
C-I-31 In mixed -use areas or other areas with high
pedestrian traffic, provide mid -block pedestrian
crossings, where feasible, to create more direct
walking routes.
5.4 Public Transit
Regional and local bus services in the City of San Pablo are provided by the Alameda -Contra Costa Transit District (AC Transit) and Western Contra Costa County Transit (WestCAT).
Heavy and commuter rail services are provided by the Bay Area Rapid Transit (BART) and Amtrak via the Richmond station about
1.5 miles south of San Pablo as shown in light blue. Existing bus routes are illustrated on Figure 5-5.
IIT
IIT
§¨¦80
City of
Richmond
City of
Richmond
21ST ST
11TH ST
SAN PABLO AVE
17TH ST
VALE RD
DOVER AVE
20TH ST
STANTON AVE
PINE AVE
MINER AVE
19TH ST
16TH ST
15TH ST
AMADOR ST
RIVERS ST
SUTTER AVE
EMERIC AVE
12TH ST
14TH ST
HILLCREST RD
ROLLINGWOOD DR
13TH ST
SANFORD AVE
LAKE ST
RIDGE RD
CALIFORNIA AVE
22ND ST
18TH ST
BUSH AVE
JOHN AVE
WILLOW RD
ALPINE RD
BROOK WAY
PALMER AVE
TYLER ST
ESPANOLA CT
VAN NESS ST
POWELL ST
ARUNDEL WAY
DEVON WAY
MARIN AVE
MASON ST
WILCOX AVE
STANDARD ST
POST AVE
CHEVY WAY
ALFREDA BLVD
STONE ST
BAYO VISTA AVE
KELLEY AVE
FORDHAM ST
GREENWOOD DR
MANOR DR
YUBA AVE
MANCHESTER AVE
PULLMAN ST
FOLSOM AVE
MISSION AVE
AVON LN
VILLA DR
MISSION BELL DR
MACARTHUR AVE
MORROW DR
BEAU RIVAGE
BOWHILL LN
DOUGLAS ST
MIFLIN AVE
TRENTON BLVD
BONITA RD
MERRITT AVE
GLENLOCK ST
DEL CAMINO DR
FILLMORE ST
PABLO VISTA AVE
LOVEGROVE AVE
GLENN AVE
COLIN ST
ACAPULCO DR
MARELIA CT
BANCROFT LN
MONTOYA AVE
VENTURA AVE
ABELLA CIR
CLARE ST
JOEL CT
GERALD AVE
EVENS AVE
MANZANILLA DR
CARLFIELD ST
CORTE ST
OHARE AVE
CONTRA COSTA AVE
CASINO AVE
RUMRILL RD
WYMAN ST
RIVERSIDE AVE
REGINA AVE
BARRANCA ST
HUMBOLDT ST
E VICTORIA CT
SHASTA AVE
HARBORVIEW AVE
CLEMENT AVE
CONNECTICUT AVE
CHATTLETON LN
UNIVERSITY AVE
BARBARA LN
KIRK LN
JEAN CT
MADRONE WAY
WESTGATE CIR
W VICTORIA CT
FRIEDA CT
BROOKSIDE AVE
MONTE BUENA ST
DODSON ST
JUDITH CT
WANLASS AVE
DRAKE WAY
LARCHMONT LN
18TH ST
19TH ST
20TH ST19TH ST
BUSH AVE
15TH ST
15TH ST
21ST ST
18TH ST
SHASTA AVE
GLENN AVE
17TH ST
MERRITT AVE
RIVERSIDE AVE
14TH ST
18TH ST
DOVER AVE
19TH ST
22ND ST
MASON ST
15TH ST
16TH ST
17TH ST
POST AVE
LAKE ST
20TH ST
21ST ST
RIVERS ST
YUBA AVE
19TH ST
22ND ST
16TH ST
17TH ST
MINER AVE
ROSE ARBOR A VE
Bayview A ve
BOLDUC CT
CAPITO
LH
ILL AVE
W ESTVIEW
PL
N
ARLINGTONBLVD
H
ILLCREST
RD
MI
FFIN
AVE
EL PORTAL DR SAN PABLO DAM RD
ROAD 20
ROAD 20
BROOKSIDE DR
MARKET AVE
MARKET ST CHURCH LN
CHURCH LN
23RD ST
VALENCIA WAY
BROADWAY
ROAD 20 RUMRILL BLVD
CHESLEY AVE
RICHMOND PKWY
RICHMOND PKWY
City
Hall
Contra Costa
College
John
Herbert
Davis Park
San Pablo
Lytton
Casino
St. Joseph
Cemetery &
Funeral Center
Wanlass
Park
Richmond BART
1.5 Miles
Richmond Ferry Terminal
3.5 Miles
El Cerrito BART
4 miles
Rheem Creek
San Pablo Creek
Wildcat Creek
San Pablo Creek
Wildcat Cr eek
San Pablo Creek
BURLINGTON NORTHERN SANTA FE RR
UNION PACIFIC RR
SOURCE: Kittleson, 2021; City of San Pablo, 2024;
Contra Costa County GIS, 2024; Dyett & Bhatia, 2024
0 0.2 0.40.1
Miles
Transit and Truck Routes
J:\GISData\581_SanPablo_GP\GIS\Projects\GeneralPlan\General Plan Map Updates\Figure 5-5 Transit and Truck Routes.mxd Figure 5-5:
City Limits
Sphere of Influence
Major Roads
Railroads
Local Transit Routes
376
70 71
72 72R
74 76
Transbay Transit Lines
L
LA
IIT Public Transit Hubs
Chapter 5: Circulation
5-31
AC Transit is the primary public transit
(bus) provider in San Pablo with six routes.
AC TRANSIT
AC Transit serves 13 cities and adjacent unincorporated areas in Alameda and Contra Costa counties from Richmond/Pinole in the north, to Fremont in the south, to Castro Valley in the east, and west into and from San Francisco. It provides fixed - route bus service on weekdays, weekends, and holidays,
linking San Pablo to major retail, institutional, and
governmental activity centers located within the service area.
There is a Major Transit Hub , known as the “Transit Center” established on the campus of Contra Costa College, near the Student Association Building and the Vocational Building. This stop is a “Timed Transfer Stop” which provides synchronized bus-to-bus transfers. The City is coordinating with AC Transit and West Contra Costa Transportation Commission (WCCTC) to explore the feasibility of Bus Rapid Transit (BRT) along San Pablo Avenue in San Pablo.
WESTCAT
WestCAT primarily serves the cities of Pinole and Hercules but one of its service routes starts from the Transit Center at Contra Costa College. This weekday -only service passes through the City of Pinole and ends at the City of Hercules.
BART/AMTRAK
The Bay Area Rapid Transit (BART) provides service to San Francisco as well as Contra Costa, Alameda, and San Mateo counties. The closest BART stations to San Pablo residents are the Richmond and El Cerrito Del Norte stations, which are about 1.5 miles and three miles to south, respectively. The stations are well connected via AC Transit bus routes from San Pablo. Customer parking is available at both stations.
The Richmond BART station is also the connecting point for two Amtrak routes. The Capitol Corridor, which serves
Sacramento and Auburn to the east and Oakland and San José to the south, operates twelve eastbound and twelve westbound trains on weekdays and eleven trains per direction on
weekends. The San Joaquin, which serves the Central Valley corridor of Stockton, Fresno and Bakersfield, operates five trains per direction through the Richmond station on a daily basis.
San Pablo General Plan 2035
5-32
Transit Oriented Development (TOD)
Transit Oriented Development or TOD is the combined,
intentional planning of dense, mixed use land use that is served by a network of frequent transit and walkable services with a high standard of design in a compact area. TOD promotes a community design that offers housing and transport ation choices to residents that are convenient, affordable, and create a high -quality environment and experience for people. TOD represents a necessary step and key strategy toward achieving a more sustainable future. In par ticular, TOD is critical to delivering on residents’ expectations for housing choice, improved livability, and socially strengthened communities.
TOD is comprised of three ingredients, all of which should be coordinated to produce financially viable, technically feasible, and community supported plans that benefit the community.
They are, following the acronym for T -O-D:
Transit or Transportation. The different transportation modes (transit, walking, bicycle, cars, taxis, etc.) and the infrastructure and amenities that these need (lanes, parking spots, stopping locations, stations, etc.) that provide mobility services to an area.
Oriented or Open Space. The public domain (plazas, patios, parks, sidewalks, etc.) that form the transition between the transportation facilities and the buildings, also known as ‘the spaces between,’ which can be public or private property.
Development or Buildings . The built-up areas in (primarily) private parcels where different human activities or uses occur that enable the activation of the surrounding open spaces and become a trip destination for transit and other modes.
In 2024, the City adopted a Sustainable TOD Master Plan. The Plan provides analysis and recommendations to facilitate equitable and climate -resilient transit -oriented development in San Pablo. It identified four “Core TOD Priority Areas” in the City, as well as three “Outlying Corridors”. The Core TOD Priority Areas are concentrated, connected, transit -serviced, and all on or near San Pablo Avenue. The Outlying Corridors are additional areas that create a supportive network without all of the functions of the Priority Areas.
Chapter 5: Circulation
5-33
GUIDING POLICIES
C-G-5 Encourage the use and expansion of public
transportation systems, including decreased peak
hour headways on commuter routes, such as San
Pablo Avenue.
C-G-6 Facilitate the use of public transportation in San Pablo by making it more comfortable and
convenient.
IMPLEMENTING POLICIES
C-I-32 Continue coordination efforts with public
transit providers to maintain transit service
that is safe and efficient with convenient
connections to high use and activity
intersections in the city.
C-I-33 Work with public transit providers to
upgrade selected bus -stops with advanced
traveler information systems (ATIS).
The installation of the ATIS system will increase
bus schedule reliability and maintain traffic flow.
C-I-34 Work with public transit providers to
advocate for increased transit frequency in
underserved areas in the city.
C-I-35 Work with public transit providers to develop
context-sensitive bus-stop designs to enhance
passenger safety and transit efficiency along
23rd Street and San Pablo Avenue.
The City will work with AC Transit to develop bus
bulb-outs for selected bus -stops along 23rd Street
and San Pablo Avenue. Benefits include preventing
buses from being delayed by having to pull back into
traffic, reducing risk of accidents, and reducing
sidewalk congestion when passengers are trying to
board.
San Pablo General Plan 2035
5-34
C-I-36 Coordinate with CCTA and the West Contra
Costa Transportation Commission regarding
the results of the feasibility study of Bus Rapid
Transit (BRT) along San Pablo Avenue
(underway as of 2025).
C-I-37 Review the existing 5-year paving plan for
streets identified in th e TOD Master Plan, the
Bicycle and Pedestrian Master Plan, or other
City and regional transportation plans, and
ensure that planned bicycle, pedestrian, and
transit improvements are included in
repaving. Prioritize projects with a bike,
pedestrian, and transit focus in the 5 -year
paving plan.
C-I-38 Require new development projects to improve
adjacent sidewalk and trail facilities when
they are developed, and to provide pedestrian
and bicycle connections to their site.
C-I-39 Incentivize Cyclist Facilities in New
Development. Initiate programs to offer
incentives for new developments in the TOD
Priority Area (as outlined in the TOD Master
Plan) for provision of secure bike parking,
cyclist-friendly entrances and exits, bike
repair hubs, showers and locker rooms in new
residential and employment developments.
Continue to implement cyclist facilities as
outlined in the policy recommendations
supported by the Bicycle and Pedestrian
Master Plan (2017) and explore improving the
zoning ordinance to help incentivize cycling
facilities.
C-I-40 Coordinate with El Sobrante and Contra Costa
County to improve safe bicycle connections
along San Pablo Dam Road east into
unincorporated Contra Costa County.
C-I-41 Partner with the City of Richmond to ensure
interjurisdictional bicycle, pedestrian,
rideshare, and transit connections between the
two cities, particularly San Pablo residents to
the Richmond BART Station.
Chapter 5: Circulation
5-35
C-I-42 Work with Contra Costa County to ensure
bicycle, pedestrian, and transit connections
between San Pablo and unincorporated
Contra Costa County, including the census -
designated places of Rollingwood and North
Richmond.
C-I-43 Partner with the Alameda County
Transportation Commission (ACTC), AC
Transit, and Contra Costa Transportation
Authority (CCTA), and WestCat Transit to
ensure that future high-quality rapid bus and
Bus Rapid Transit Service extends north
through San Pablo.
5.5 Truck Routes and Freight Rail
TRUCKS
In addition to moving people, the roadway system in San Pablo carries a substantial number of trucks moving goods.
Specific truck routes have been designated throughout the City and are shown on Figure 5-5. These routes are designed to allow truck traffic to pass through the City with minimal impact on residential neighborhoods as well as local vehicular and pedestrian traffic.
FREIGHT RAIL
The Burlington Northern Santa Fe and the Union Pacific
Railway own and operate freight rail services along the tracks that run parallel to Giant Road to the west of the Planning Area.
Several roadways cross the tracks at -grade, including Parr Boulevard, John Avenue, and Griffin Drive-Giant Road.
GUIDING POLICIES
C-G-7 Balance commercial goods movement with the
health and quality of life priorities of the
community.
San Pablo General Plan 2035
5-36
IMPLEMENTING POLICIES
C-I-44 Continue to keep heavy truck traffic outside
residential neighborhoods.
C-I-45 Promote safety at railroad crossings through
the following measures, as necessary:
• Improvements to pedestrian warning devices at
existing railroad crossings;
• Installation of additional warning signage
and/or channelization;
• Improvements to traffic signaling at
intersections adjacent to crossings;
• Prohibition of parking within 100 feet of
crossings to improve the visibility of warning
devices and approaching trains;
• Zoning setback and height standards to
maintain the visibility of warning devices and
approaching trains; and
• Rail safety awareness programs to educate the
public about the hazards of at grade crossings.
5.6 Parking
Parking policies are intended to accommodate parked vehicles used by occupants, visitors, customers, clientele, and employees of a variety of buildings in the city. These policies seek to provide accessible, attractive, secured parking facilities, and can help reduce traffic c ongestion.
GUIDING POLICIES
C-G-8 Foster practical parking solutions to serve
community needs while avoiding excessive amounts
of surface parking that disrupt the urban fabric of
the city.
General Plan policies aim to foster innovative
parking solutions, such as requiring minimum street
trees per number of parking stalls to help avoid the appearance of a “sea of asphalt” in San Pablo.
Chapter 5: Circulation
5-37
IMPLEMENTING POLICIES
C-I-46 Amend the Zoning Ordinance to establish
“green” parking design standards that have
multiple benefits, such as shared parking for
mixed use projects, photovoltaic panels on
parking structures to generate energy for
parking lot lighting, landscaping and trees in
surface parking, provision of Electric Vehicle
(EV) charging stations, and use of pervious
paving to improve groundwater recharge and
promote innovative surface parking design
that avoids t he appearance of a “sea of
asphalt” and reduces environmental impacts.
Strategies include, but are not limited to:
• Require parking to be provided behind
buildings, wherever feasible;
• Promote the use of time, motion-sensing,
and/or solar powered parking lot lights or
security lights, wherever feasible;
• Establish specific standards for perimeter
landscaping, including the type and coverage
required along the edges of surface parking
areas adjacent to streets;
• Require a minimum number of trees per
parking stall in surface parking areas (e.g. 1 per
8 stalls for double-loaded bays) to provide
shade, and reduce urban heat island effects;
• Separate pedestrian pathways from car lanes
where possible;
• Promote the use of porous paving and a variety
of drainage features according to the site; and
• Restrict use of vacant lots as vehicle parking and
outdoor storage of commercial equipment,
construction equipment, and similar items
unless screened from view from adjacent streets.
• Encourage tandem parking in residential
neighborhoods to reduce the amount of
pavement dedicated to parking.
San Pablo General Plan 2035
5-38
C-I-47 Adjust parking requirements in the Zoning
Ordinance to avoid over -parking and
encourage shared -use of parking with
compatible uses. Continue to allow for
parking waivers and adjustments where
warranted.
C-I-48 Prohibit excessive pavement in residential
yards so that residential front yards do not
become parking lots.
C-I-49 Conduct parking studies in congested areas
and consider parking management strategies,
such as permit parking, parking limitations,
addition of public parking or other strategies.
C-I-50 Promote use of innovative parking
technologies, such as parking lifts and
automated parking.
C-I-51 Require convenient and accessible parking
facilities for persons with disabilities,
consistent with Americans with Disabilities
Act (ADA) requirements.
C-I-52 Limit parking within the public right of way
based upon considerations of safety, street
width, visibility and access to properties.
C-I-53 Continue to enforce parking regulations and
prevent spillover of parking from commercial
areas into residential neighborhoods.
A Residential Parking Program may be created, if
needed, to protect neighborhoods from spillover
parking effects.
5.7 Transportation Demand
Management
Transportation demand management (TDM) is the application of strategies and policies to reduce travel demand or to redistribute demand away from peak hours to reduce or
prevent traffic congestion. Strategies may include encouraging travelers to change their travel mode from driving alone to choosing a carpool, vanpool, public transit vehicle, or other commuter alternative; and providing information to let
Chapter 5: Circulation
5-39
travelers make better decisions about how they travel, when they travel, where they travel, and which route they travel.
Since 1998, TDM is implemented regionally in Contra Costa County through the 511 Contra Costa program.
GUIDING POLICIES
C-G-9 Promote efficient use of existing transportation
facilities through the implementation of
transportation demand management concepts.
IMPLEMENTING POLICIES
C-I-54 Establish travel demand management
programs to reduce peak -hour traffic
congestion and help reduce regional vehicle
miles traveled.
C-I-55 Allow new development projects to prepare
and follow a Transportation Demand
Management Plan in exchange for parking
reductions or other incentives.
C-I-56 Raise awareness about requirements for
businesses and information about the West
Contra Costa Transportation Commission
(WCCTC)/511 Contra Costa.
See the Growth Management Element for
additional detail about such programs, as required
by Measure J.
San Pablo General Plan 2035
5-40
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6 6 UTILITIES
PARKS, SCHOOLS ,
COMMUNITY FACILITIES &
Parks, schools, and public utility services like water , stormwater, sanitary sewers and solid waste management are a vital part of a livable, sustainable San Pablo. While they are essential in any city, they become even more important in areas of high population density where open space is scarce. The purpose of this element is to help document existing
infrastructure and services, identify areas of improvement, and ensure that the se services meet the needs of community members as the city grows.
6.1 Parks and Recreation
Parks and recreation facilities provide opportunities for relaxation, informal sports, passive and active recreation, appreciation of nature, and a break from the stresses of everyday life. Besides their recreational function, well - designed parks can create a positive image for the city and help to foster a sense of community. To be successful, however, these facilities need to be accessible to all, safe to use, and well - maintained. This section will guide the development of San Pablo’s parks and recreation facilities. Goals and policies provide a framework to improve existing facilities and develop new facilities to meet the needs of the community.
EXISTING PARKS AND RECREATION FACILITIES
As of 2024 , San Pablo’s Recreation Division maintains eight community and neighborhood parks. These parks range in size from the small (0.1-acre) 14th Street Park to the large (11.6-acre) Davis Park. All parks provide valuable recreation
opportunities to San Pablo’s residents. The types of parks in the city are classified as follows:
San Pablo General Plan 2035
6-2
• Neighborhood Park. A neighborhood park is typically
less than 1.5 acres in size and provides basic recreation facilities for one or more neighborhoods. The service
area typically ranges less than half a mile.
• Community Park. A community park is typically larger
than 1.5 acres in size and is intended to serve the
recreation needs of the entire city.
• Linear Park. A linear park is a specialized park facility typically located adjacent to a creek and/or a linear
trial.
As shown on Table 6.1-1, the total amount of public parkland is approximately 26.5 acres. (This does not include parks that are located on school and college campuses.) The City has a joint-use agreement with West Contra Costa School District and Contra Costa College, allowing the use of their facilities for recreation purposes during non -school hours.
In addition to the parks listed below, two additional park s are in design as of 2025. These include the 4.8-acre McNeil Park, located near Contra Costa College, and a small open space that will be created as part of the San Pablo Avenue Bridge replacement project, which will also include a redesign of Kennedy Plaza .
Additionally, a publicly -accessible 0.1 -acre playlot is under construction as part of a private townhome development on Chattleton Lane. The completion of these park will bring the total park acreage in San Pablo to 31. 4 acres, providing a park ratio of
1.02 acres of parkland per 1,000 residents.
In addition to the operation of the parks, the City also operates a community center co-located at the Helms Middle School .
Additionally, the San Pablo Senior Center offers social services and recreational activities. Additional facilities are available at the Wanlass and Davis Park community halls , as well as Maple Hall, which is housed within the new City Hall . Together, these facilities offer a diverse range of services to meet the needs of the community.
Chapter 6: Parks, Schools, Community Facilities & Utilities 6-3
Table 6.1-1 Existing Public Parks
Name Type Size (Acres)
14th Street Park Neighborhood Park 0.1
Brentz Lane Park Neighborhood Park 0.8
Kennedy Plaza Community Park 1.8
Wanlass Park Community Park 4.6
Davis Park Community Park 11.6
Wildcat Creek Trail Linear Park 3.2
Rumrill Sports Park
Happy Friday Park
Community Park
Neighborhood Park
4.4 0.1
Total 26.6
Park Ratio (Acres per 1,000 residents) 0.82
Source: City of San Pablo, 2024.
Davis Park is the largest park in San Pablo and a popular destination for residents.
PARK DEMAND
A major goal of this General Plan is to increase the amount of park and recreation areas in the city. Currently, San Pablo has a ratio of 0.82 acres of parkland per 1,000 residents, which is expected to increase to 0.98 acres per 1,000 residents in the near term , —but this is still far below the goal of three acres of parkland per 1,000 residents that is an industry standard and is referenced in the City’s Subdivision Code. The process for determining future land uses for this General Plan specifically addresses this parkland
San Pablo General Plan 2035
6-4
deficiency. Figure 6 -1 illustrates existing and planned parks and recreational spaces for the City of San Pablo. The number of new parks and open spaces allocated under the General Plan is intended to provide parkland not only to meet demand by new residents, but also to make up the existing deficiency in parkland for current residents. While the exact locations of all of the future parks cannot be determined at this point, seven potential generalized park locations are presented. These include:
1. Near the junction of Road 20 and Rumrill Boulevard;
2. At the junction of Bush Avenue and 17th Street in Old Town (now developed as Happy Friday Park) ;
3. Near the existing Fire Station along San Pablo Avenue;
4. At the proposed Mixed Use Center at the Circle S /New City Hall site (note that open spaces already developed at the North of Giant Trade Center along Giant Road;
5. Wildcat Creek trail and planned at Chattleton Townhomes lot);
6. On the hill behind Princeton Plaza; and
7. Rumrill Boulevard between Chesley and Market Avenue.
Successful development of parks or open spaces at all of these target locations will add about 24.4 new acres of parkland to the city (see Table 6.1-2). This potential development along with th e
4.9 acres that are currently being planned or under construction at McNeil Park and Chattleton Townhomes will help increase the parkland ratio from the anticipated 0.98 acres of parkland per 1,000 residents to 1.74 acres of parkland per 1,000 residents. While the proposed future ratio is still lower than the goal established in the City’s Municipal Code, it is an appreciable improvement over existing conditions and a more realistic goal for this planning period.
Table 6.1-2 Summary of Proposed Parks in San Pablo
Type Acreage
Existing Parks
Parks in planning/construction
26.07 4.9
Proposed Parks 24.4
Total Parkland at Buildout 55.37
Park Ratio (Acres per 1,000 residents) 1.74
Source: Dyett & Bhatia, 2010, 2025
Located at the Southeast corner of Morrow
Drive and Brentz Lane, Brentz Lane Park
serves the residents of San Pablo hill.
§¨¦80
^_
City of
Richmond
Bayview
Elementary School
Contra Costa
College
Lake
Elementary
School
Helms
Middle School
Salesian College
Preparatory
High School
St Paul
School
Dover
Elementary
School
Downer
Elementary
School
Riverside
Elementary
School
!
San Pablo Ave
Bridge
Open Space
(Planned)
Kennedy
Plaza
(Expansion/
Improvements)
City of
Richmond
21ST ST
11TH ST
SAN PABLO AVE
17TH ST
VALE RD
DOVER AVE
20TH ST
STANTON AVE
PINE AVE
MINER AVE
19TH ST
16TH ST
15TH ST
AMADOR ST
RIVERS ST
SUTTER AVE
EMERIC AVE
12TH ST
14TH ST
HILLCREST RD
ROLLINGWOOD DR
13TH ST
SANFORD AVE
LAKE ST
RIDGE RD
CALIFORNIA AVE
22ND ST
18TH ST
BUSH AVE
JOHN AVE
WILLOW RD
ALPINE RD
BROOK WAY
PALMER AVE
TYLER ST
ESPANOLA CT
VAN NESS ST
POWELL ST
ARUNDEL WAY
DEVON WAY
MARIN AVE
MASON ST
WILCOX AVE
STANDARD ST
POST AVE
CHEVY WAY
ALFREDA BLVD
STONE ST
BAYO VISTA AVE
KELLEY AVE
FORDHAM ST
GREENWOOD DR
MANOR DR
YUBA AVE
MANCHESTER AVE
PULLMAN ST
FOLSOM AVE
MISSION AVE
AVON LN
VILLA DR
MISSION BELL DR
MACARTHUR AVE
MORROW DR
BEAU RIVAGE
BOWHILL LN
DOUGLAS ST
MIFLIN AVE
TRENTON BLVD
BONITA RD
MERRITT AVE
GLENLOCK ST
DEL CAMINO DR
FILLMORE ST
PABLO VISTA AVE
LOVEGROVE AVE
GLENN AVE
COLIN ST
ACAPULCO DR
MARELIA CT
BANCROFT LN
MONTOYA AVE
VENTURA AVE
ABELLA CIR
CLARE ST
JOEL CT
GERALD AVE
EVENS AVE
MANZANILLA DR
CARLFIELD ST
CORTE ST
OHARE AVE
CONTRA COSTA AVE
CASINO AVE
RUMRILL RD
WYMAN ST
RIVERSIDE AVE
REGINA AVE
BARRANCA ST
HUMBOLDT ST
E VICTORIA CT
SHASTA AVE
HARBORVIEW AVE
CLEMENT AVE
CONNECTICUT AVE
CHATTLETON LN
UNIVERSITY AVE
BARBARA LN
KIRK LN
JEAN CT
MADRONE WAY
WESTGATE CIR
W VICTORIA CT
FRIEDA CT
BROOKSIDE AVE
MONTE BUENA ST
DODSON ST
JUDITH CT
WANLASS AVE
DRAKE WAY
LARCHMONT LN
18TH ST
19TH ST
20TH ST19TH ST
BUSH AVE
15TH ST
15TH ST
21ST ST
18TH ST
SHASTA AVE
GLENN AVE
17TH ST
MERRITT AVE
RIVERSIDE AVE
14TH ST
18TH ST
DOVER AVE
19TH ST
22ND ST
MASON ST
15TH ST
16TH ST
17TH ST
POST AVE
LAKE ST
20TH ST
21ST ST
RIVERS ST
YUBA AVE
19TH ST
22ND ST
16TH ST
17TH ST
MINER AVE
ROSE ARBOR A VE
Bayview A ve
BOLDUC CT
CAPITO
LH
ILL AVE
W ESTVIEW
PL
N
ARLINGTONBLVD
H
ILLCREST
RD
MI
FFIN
AVE
EL PORTAL DR SAN PABLO DAM RD
ROAD 20
ROAD 20
BROOKSIDE DR
MARKET AVE
MARKET ST CHURCH LN
CHURCH LN
23RD ST
VALENCIA WAY
BROADWAY
ROAD 20 RUMRILL BLVD
CHESLEY AVE
RICHMOND PKWY
RICHMOND PKWY
City
Hall
San Pablo
Lytton
Casino
St. Joseph
Cemetery &
Funeral Center
Rheem Creek
San Pablo Creek
Wildcat Creek
San Pablo Creek
Wildcat Cr eek
San Pablo Creek
BURLINGTON NORTHERN SANTA FE RR
UNION PACIFIC RR
W
ildcatCreekTrail
Wil dcat CreekTrail
Wanlass
Park
14th Street
Neighborhood
Park
McNeil Park
(Planned)
John He rbet
Davis Par k
Happy
Friday
Park
!
Block E
Tot Lot
(Planned)
Brentz Lane
Neighborhood
ParkRumrill
Sports
Complex
Kennedy
Plaza
SOURCE: City of San Pablo, 2024; Contra Costa County GIS, 2024; Dyett & Bhatia, 2024
0 0.2 0.40.1
Miles
Existing and Planned Parks
and Recreational Facilities
J:\GISData\581_SanPablo_GP\GIS\Projects\GeneralPlan\General Plan Map Updates\Figure 6-1 Existing and Planned Parks and Recreational Facilities.mxd Figure 6-1:
School/College
City Limits
Sphere of Influence
Major Roads
Railroads
Neighborhood Park
Community Park
Linear Park
Sports Complex
Open Space
Planned Park
^_ Park Expansion/Improvements
Existing Trail
Park Service Area
Parks Quarter Mile Service Radius
Parks Half Mile Service Radius
Davis
Park
San Pablo General Plan 2035
6-6
LINEAR PARKS
In addition to new parks described above, the General Plan proposes a network of linear parks throughout San Pablo. This will be achieved by developing selected parts of Wildcat Creek and San Pablo Creek into green trails. Where possible, existing buffer areas surrounding the creeks will be expanded and provided with a creekside path. In some locations, c urrently covered creeks can be day -lighted and restored to their natural state. The goal is to help preserve this ecological resource and promote the enjoyment of the creeks. This has already happened at the Davis Park location, but the remaining location is under a shopping center parking lot and may not feasibly be uncovered.
In 2020, the City completed construction of the State and locally funded 2,200-foot-long Wildcat Creek Restoration and Greenway Trail Project, extending from Church Lane on the north to Vale Road to Vale Road on the south. Project benefits include refuge areas for fish, a modified floodplain to accommodate larger flow volumes, a widened creek corridor and the re -planting of native plants on the restored bank. In addition to the in -stream benefits of creating a more natural c reek habitat, this project also provides a Class I shared-use path for cyclist and pedestrians.
Once completed, the linear park system will accommodate both pedestrians and bicyclists, and offer amenities such as benches, mileage markers, exercise stations, and/or water fountains. The linear parks will provide additional open space over and above the city’s existing and proposed parkland.
COMMUNITY GARDENS
Another proposal in the General Plan is the creation of a system of community gardens. The goal is to provide residents with access to fresh vegetables and help instill a sense of community and connection to the environment. Two community gardens currently exist in San Pablo, with one located at Davis Park and one at Wanlass Park. The General Plan proposes to improve upon and expand this network. One possible community plot could be located at Contra Costa College, on a site to be determined jointly by the College and the City Council. Other gardens may be located on school sites.
Additional details on community gardens is found in the Community Health & Environmental Justice Element (Chapter 8).
Chapter 6: Parks, Schools, Community Facilities & Utilities 6-7
Many families living in the city would like to grow some of their own fruits or vegetables. Community gardens allow them to do that, help beautify neighborhoods, and bring neighbors closer together.
GUIDING POLICIES
PSCU-G-1 Provide an expanded, high quality, and diversified park system which allows varied recreational
opportunities for the entire community.
IMPLEMENTING POLICIES
PSCU-I-1 Seek to achieve a standard of 3.0 acres of
parkland per 1,000 residents.
In addition to parkland dedication by developers,
the City will also acquire or re-develop parkland to
work towards meeting the goal of 3.0 acres of park
per 1,000 residents, subject to availability of
funding and availability of suitable sies .
Specialized recreational facilities, such as school
facilities, may be counted as part of the parkland
total if they become publicly accessible.
PSCU-I-2 Prepare and adopt a Parks and Recreation
Master Plan. The Master Plan should include
the following components:
San Pablo General Plan 2035
6-8
• Clearly defined categories for facilities, such as
parks, recreational buildings, and open space
areas;
• An assessment of existing and future
recreational needs including the needs of
special user groups, such as children, the multi -
cultural population, the disabled, and the
elderly;
• Identification of potential linkages and access
between City parks and recreation facilities and
regional park facilities;
• Sustainable construction and park maintenance
strategies;
• Development of an action plan to prioritize the
City’s needs, identify preferred sites for new
facilities, identify staffing needs, and present a
plan for acquisition and improvement of future
facilities; and
• Development of a comprehensive financing
strategy for park and recreation facilities.
PSCU-I-3 Develop new park and recreation facilities and continue to upgrade existing ones with universal
accessibility, durability, and low maintenance in
mind.
PSCU-I-4 Require residential developers to contribute to the City’s parks and open space system based on their
proportional share of needs generated by new
residents.
PSCU-I-5 Periodically update park impact fees to assure the City’s ability to maintain park and recreation
infrastructure and facilities.
PSCU-I-6 Provide security lighting to illuminate communal areas and pathways in all parks to ensure safety
and where feasible, select DarkSky-compliant
lighting fixtures that will not produce glare or
illuminate the night sky .
Whenever possible, the City will select lighting
fixtures that are shielded, are solar–powered,
and/or can turn on automatically in low light
conditions.
Chapter 6: Parks, Schools, Community Facilities & Utilities 6-9
PSCU-I-7 Continue joint -use park and recreation
agreements with West Contra Costa Unified
School District and Contra Costa College to
improve the community’s access to park and
recreation facilities with minimal or no
financial commitments by the City .
Joint use agreements with schools and the College
are especially important since San Pablo has few
public parks available.
PSCU-I-8 Involve citizens, especially youth , in
maintaining park areas through participating
in park watches, resident-based graffiti watch,
trash removal efforts, and clean up and repair.
Coordinate with the San Pablo Shines program
for implementation.
6.2 Schools and Community Facilities
This section focuses on the needs of the City with respect to community-and public -serving facilities. It addresses schools, libraries, the hospital, City Hall, and other cultural and community facilities.
PUBLIC SCHOOLS
The City of San Pablo falls within the service area of the West Contra Costa Unified School District (WCCUSD). The
WCCUSD is responsible for providing elementary, middle, and high school education in West Contra Costa County. It operates five elementary schools, one middle school, and one high school within the Planning Area. Outside the Planning Area, two other elementary schools and one high school have
attendance areas that include portions of the city. Figure 6 -2 illustrates the locations of these schools.
The combined 2023-2024 enrollment of schools with attendance areas in San Pablo was 2,688 elementary school students, 579 middle school students, and 1,624 high school students. Table
6.2-1 summarizes enrollment and capacity counts. Due to declining enrollments, all schools within the attendance area are under capacity .
Downer Elementary is one of the seven
elementary schools with attendance areas within
San Pablo’s Planning Area.
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Center
San Pablo
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21ST ST
11TH ST
SAN PABLO AVE
17TH ST
VALE RD
DOVER AVE
20TH ST
STANTON AVE
PINE AVE
MINER AVE
19TH ST
16TH ST
15TH ST
AMADOR ST
RIVERS ST
SUTTER AVE
EMERIC AVE
12TH ST
14TH ST
HILLCREST RD
ROLLINGWOOD DR
13TH ST
SANFORD AVE
LAKE ST
RIDGE RD
CALIFORNIA AVE
22ND ST
18TH ST
BUSH AVE
JOHN AVE
WILLOW RD
ALPINE RD
BROOK WAY
PALMER AVE
TYLER ST
ESPANOLA CT
VAN NESS ST
POWELL ST
ARUNDEL WAY
DEVON WAY
MARIN AVE
MASON ST
WILCOX AVE
STANDARD ST
POST AVE
CHEVY WAY
ALFREDA BLVD
STONE ST
BAYO VISTA AVE
KELLEY AVE
FORDHAM ST
GREENWOOD DR
MANOR DR
YUBA AVE
MANCHESTER AVE
PULLMAN ST
FOLSOM AVE
MISSION AVE
AVON LN
VILLA DR
MISSION BELL DR
MACARTHUR AVE
MORROW DR
BEAU RIVAGE
BOWHILL LN
DOUGLAS ST
MIFLIN AVE
TRENTON BLVD
BONITA RD
MERRITT AVE
GLENLOCK ST
DEL CAMINO DR
FILLMORE ST
PABLO VISTA AVE
LOVEGROVE AVE
GLENN AVE
COLIN ST
ACAPULCO DR
MARELIA CT
BANCROFT LN
MONTOYA AVE
VENTURA AVE
ABELLA CIR
CLARE ST
JOEL CT
GERALD AVE
EVENS AVE
MANZANILLA DR
CARLFIELD ST
CORTE ST
OHARE AVE
CONTRA COSTA AVE
CASINO AVE
RUMRILL RD
WYMAN ST
RIVERSIDE AVE
REGINA AVE
BARRANCA ST
HUMBOLDT ST
E VICTORIA CT
SHASTA AVE
HARBORVIEW AVE
CLEMENT AVE
CONNECTICUT AVE
CHATTLETON LN
UNIVERSITY AVE
BARBARA LN
KIRK LN
JEAN CT
MADRONE WAY
WESTGATE CIR
W VICTORIA CT
FRIEDA CT
BROOKSIDE AVE
MONTE BUENA ST
DODSON ST
JUDITH CT
WANLASS AVE
DRAKE WAY
LARCHMONT LN
18TH ST
19TH ST
20TH ST19TH ST
BUSH AVE
15TH ST
15TH ST
21ST ST
18TH ST
SHASTA AVE
GLENN AVE
17TH ST
MERRITT AVE
RIVERSIDE AVE
14TH ST
18TH ST
DOVER AVE
19TH ST
22ND ST
MASON ST
15TH ST
16TH ST
17TH ST
POST AVE
LAKE ST
20TH ST
21ST ST
RIVERS ST
YUBA AVE
19TH ST
22ND ST
16TH ST
17TH ST
MINER AVE
ROSE ARBOR A VE
Bayview A ve
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St. Joseph
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Rheem Creek
San Pablo Creek
Wildcat Creek
San Pablo Creek
Wildcat Cr eek
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14th Street
Neighborhood
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Davis
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Happy
Friday
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Brentz Lane
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Rumrill
Sports
Complex
Kennedy
Plaza
Wanlass
Community
Center
San Pablo
Police
Department
Fire
St at ion 70
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Police
Station
SOURCE: City of San Pablo, 2024; Contra Costa County GIS, 2024; Dyett & Bhatia, 2024
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Chapter 6: Parks, Schools, Community Facilities & Utilities 6-11
The WCCUSD is in the process of re -constructing Lake
Elementary School, with the new main school building open as of Fall 2024 . In recent years, Downer Elementary, Dover Elementary, Riverside Elementary, Helms Middle, and Ford Elementary schools have all undergone either full or partial modernization.
Table 6.2-1 Existing Public Schools in San Pablo
2023-24 Total
School Enrollment Capacity
Elementary (K-6)
Bayview Elementary 332 649
Dover Elementary 485 725
Downer Elementary 405 800
Lake Elementary 346 528
Riverside Elementary 345 380
Ford Elementary1 368 532
Highland Elementary1 407 637
Elementary School Subtotal 2,688 4,251
Middle (7-8)
Helms Middle School 579 1,141
Middle School Subtotal 579 1,141
High School (9-12)
Middle College 283 315
Richmond High1 1,341 1,853
High School Subtotal 1,624 2,168
Total 4,891 7,560
1 Schools that are not physically within the Planning Area but have attendance areas that include parts of the Planning Area.
Source: West Contra Costa Unified School District, 2024; Education Data Partnership, 2024
San Pablo General 2035
6-12
St Paul’s School, a parish school located on Church Lane, provides private elementary and middle school education in San Pablo.
Salesian College Preparatory is a private, Roman Catholic, co - educational, college -preparatory high school, with part o f its campus located within San Pablo . Additionally, Middle College, which i s located at Contra Costa College is a highly rigorous academic program structured to provide su ccessful and
challenging experiences for high achieving students in the area. It is highly ranked and was a 2023 N ational Blue -Ribbon School, according to the U.S. Department of Education.
Buildout of the General Plan is expected to result in an additional 940 households, representing a net new population of
approximately 2,750. Student generation factors by household type shown in Table 6.2 -2 are used to calculate additional students that will result from this growth.
Household Type
Type Single Family Multifamily
Elementary School (K-6) 0.32 0.08
Middle School (7-8) 0.05 0.00
High School (9-12) 0.08 0.06
Total 0.45 0.14
Source: West Contra Costa Unified School District, 2016.
These projections use school size assumptions for each grade range as follows:
• K-6: 750 students per school
• 7-8: 900 students per school
• 9-12: 1,800 students per school
Table 6.2 -3 shows the buildout student population and school demand in 203 5. According to the projections, buildout of the General Plan in 203 5 will add approximately 175 elementary school students, 75 middle school students, and 93 high school students. Since existing schools in the area are currently under capacity, they are expected to accommodate the new students.
Therefore, no new schools are anticipated under the General Plan.
This conclusion holds true in 2025 as well.
Table 6.2-2 Student Generation Factors
Chapter 6: Parks, Schools, Community Facilities & Utilities 6-13
Table 6.2-3 Buildout Student Population and School Demand Additional
Students at Current Total Students Current
Percent
Remaining
Type Buildout Students at Buildout Capacity Capacity
Elementary School (K-6) 175 2,688 2,863 4,251 33%
Middle School (7-8) 75 579 654 1,141 43%
High School (9-12) 93 1,624 1,717 2,168 21%
Total 344 4,891 5,234 7,560 31%
Source: West Contra Costa Unified School District, 2008; Dyett & Bhatia, 2010; 2025.
CONTRA COSTA COLLEGE
Contra Costa College (CCC) is a regional community college located in San Pablo. The College encompasses 22 buildings on 80 acres of land, and had a student enrollment (both full -time and part-time) of over 5,800, as of 2022. Student enrollment has shrunk in recent years due to the region ’s high prices and funding constraints. Most students come from the cities of San Pablo, Richmond, El Cerrito, Hercules, Pinole, El Sobrante, and Rodeo. The CCC does not have dormitory facilities, and all students arrange their own housing. Under the CCC Facilities Master Plan Project, the College plans to create a new student commons and community building and a new maintenance and operations building, as well as to renovate several existing buildings. The Facilities Master Plan indicates that the college may explore building student and staff housing in the future, but no concrete plans are established at this time.
COMMUNITY FACILITIES
Community facilities are the network of public and private institutions that support the civic and social needs of the population. They offer a variety of recreational, artistic, and educational programs and special events. New community
facilities are not specifically sited on the General Plan Land Use Diagram. Small -scale facilities are appropriately sited as integral parts of neighborhoods and communities, while
existing larger - scale facilities are generally depicted as public/semi-public land use. Other types of important social and community services, such as child day care and elder care, are typically provided by the private sector and the Contra Costa County Health Services Department.
The facilities in San Pablo can be grouped into the following categories:
San Pablo General Plan 2035
6-14
• Community Centers. These facilities are designed to meet the needs of the population for civic meetings, recreational activities, social gatherings, and cultural enrichment. The City owns and operates the new Community Center located next to Helms Middle School on Road 20, the former Senior Center an d Multi -use Room at Davis Park, the San Pablo Senior Center on Church Lane, the Community Room at
Wanlass Park , and the Maple Hall multi-purpose room at the new City Hall . It also has access to the Wildcat Creek Community Room at the San Pablo Library. When not being utilized for City activities, these facilities are made available to the public for meetings or small social gatherings.
• Cultural Facilities. These facilities house scientific and historical exhibits or offer space for artistic performances and presentations. San Pablo’s Blume House and Alvarado Adobe are examples of these facilities. Both are
administered by the San Pablo Historical Society.
City policies will continue to support and preserve historical resources, such as the Blume House.
• Civic Buildings. This category of facilities includes City administrative and public buildings. City Hall, located at 1000 Gateway Avenue, falls under this category. Under construction in 2025 is the new San Pablo Police
Headquarters and Regional Training Facility, also on
Gateway Avenue. Additional facilities house City’s Public Works Maintenance Division.
Chapter 6: Parks, Schools, Community Facilities & Utilities 6-15
• Libraries. These facilities house literary, artistic, and reference materials for public use and circulation. The newly constructed San Pablo Public Library also offers a meeting room, study room, public computers , and the
Wildcat Creek Community Room . It has one of the
highest visitor and circulation rates in the County.
• Medical Facilities. This category of community facilities includes hospitals, public and private clinics, residential care facilities, and medical offices. Lifelong Urgent Care and the West County Medical Center have been major
providers of health services since Doctors Medical Center closed in 2015.
• Religious Facilities. Religious facilities include houses of worship and other related uses.
GUIDING POLICIES
PSCU-G-2 Facilitate the provision of a broad range of
community-serving facilities to meet local
needs, including, but not limited to, schools,
community centers, and libraries.
PSCU-G-3 Support sustainable standards and practices in the City’s community-serving facilities.
PSCU-G-4 Promote equitable distribution of and access to community-serving facilities throughout San
Pablo.
IMPLEMENTING POLICIES
PSCU-I-9 Work to make improvements to the recently
acquired Rollingwood Community Center,
and to the community rooms at Davis Park,
perhaps as an arts or cultural center to serve
the entire community, subject to avai lability
of funding.
The recently developed Community Center provides
an important hub for community education,
recreation, and the arts. Improvements to the newly
acquired Rollingwood C ommunity Center and
renovations to the community room at Davis Park
could provide further opportunities for the expansion
San Pablo General Plan 2035
6-16
of a cultural and arts center or other community -
serving goals . One goal of the new and renovated
centers could be to serve as a liaison between the
local multi-cultural community and the City in the
translation and distribution of materials, the
promotion of community building , and the
advancement of local multi-cultural activities and
events.
PSCU-I-10 Pursue funding to develop a n indoor Sports
Complex or gymnasium in San Pablo to meet the
recreational needs of residents.
Additional recreational facilities could be built or
renovated at Davis Park or in the Rollingwood
Community Center. This may include indoor
facilities as well as outdoor facilities.
PSCU-I-11 Ensure equal access to City facilities and services and other buildings offering health and social
services, consistent with Americans with
Disabilities Act (ADA) requirements.
PSCU-I-12 Promote artistic and cultural activities —such as art exhibitions and dance performances—by
facilitating the use of City venues for art
performances by non -profit groups and
encouraging community participation in these
events.
PSCU-I-13 Create incentives, such as reduced fees or
streamlined development review, to attract
adult education and vocational school s to the
city.
Specialized schools offering training and vocational
skills can complement the programs offered by
Contra Costa Community College to support the
City’s labor force and enhance its compe titiveness
in the region. Vocational or adult educational
schools may be located within mixed-use
redevelopment projects.
PSCU-I-15 Continue to work with West Contra Costa
Unified School District and local schools to
improve school quality and ensure continued
upgrades to school facilities in San Pablo.
Coordinate with the school district to ensure school
facilities continue to be upgraded as necessary.
Chapter 6: Parks, Schools, Community Facilities & Utilities 6-17
PSCU-I-16 Continue to support initiatives to improve
library services and residents’ access to the
library.
The City will continue to support the newly
constructed and highly successful local library
It will continue to help improve access and
publicize library services by promoting library
events on its website and in the City newsletter.
PSCU-I-17 Promote sustainable practices in the design,
construction, and renovation of both public
and private community-serving facilities.
PSCU-I-18 Facilitate high quality health care and equal access to health care services in San Pablo.
The City will work with West County Health
Center and other health care providers to
maintain a full range of health care facilities and
services to meet regional and community needs.
PSCU-I-19 Continue to support and assist in the efforts of local institutional and civic organizations to
provide basic food, shelter, and clothing to
residents in need.
PSCU-I-20 Facilitate the provision of safe, affordable, conveniently-located, and high quality adult
care and child -care facilities with flexible
hours.
The City will encourage the incorporation of
new adult care or child care facilities as stand-
alone projects or as part of major new
development, and work with private and non-
profit organizations to support the provision of
adult care and child care facilities.
PSCU-I-21 Prioritize the development of new, upgraded,
or revitalized community facilities and
infrastructure in neighborhoods that are
currently underserved or where they can be
put to maximum use.
The City will consider special needs groups,
such as low-income groups, the elderly, and
persons with disabilities, in selecting locations
for new community facilities or expanded
services.
San Pablo General Plan 2035
6-18
6.3 Public Utilities
This section addresses San Pablo’s infrastructure and utility needs, specifically water, wastewater, stormwater, electricity and gas, and solid waste collection. It is essential to note that except for storm drain infrastructure, all the other utilities are administered by independent agencies or service providers. As such, Plan policies focus on cooperative planning efforts with these agencies and providers, with the goal of ensuring that public utilities have the capacity to meet growth demands under the General Plan.
WATER SUPPLY AND DEMAND
Water supply to the Planning Area is provided by the East Bay Municipal Utility District (EBMUD), which derives its water source from the Mokelumne River in the Sierra Nevada. This water is transmitted, via aqueduct, to storage and treatment facilities throughout EBMUD’s service area, and then distributed to customers. EBMUD operates five terminal reservoirs within the East Bay: Briones, Chabot, Lafayette, Upper San Leandro, and San Pablo.10 The San Pablo Reservoir is located in a valley north of Orinda, south of El Sobrante and Richmond, and east of the Berkeley Hills.
The total capacity of the EBMUD water supply system is
constrained by the inherent dependence on seasonal rainfall and collected snowpack in the Sierra Nevada watershed. On an average annual basis, approximately 90 percent of the water used by EBMUD comes from this source. The secondary source of water is the runoff from local watersheds at EBMUD’s terminal reservoirs in the East Bay area. According to EBMUD’s 2020-2021 Annual Report, the total average water production was 181 million gallons per day (mgd). San Pablo’s estimated share of the total, calculated using proportionate share of the total service population, is only 4.2 mgd or about 2.3 percent of the total.
Water Quality
EBMUD water supply quality consistently surpasses the
standards set by the California Department of Health Services and the U.S. Environmental Protection Agency. This is because its primary water source of the Mokelumne River comes from the remote Sierra Nevada region and requires only minimal treatment to meet health standards.
10 EBMUD Urban Water Management Plan 2020, page 17
EBMUD’s Mokelumne Aqueducts carry
high quality water from the Sierra ranges
to the East Bay.
Chapter 6: Parks, Schools, Community Facilities & Utilities 6-19
Projected Demand
The demand for water by East Bay communities is expected to increase over the next 30 years. According to EBMUD’s 20 20 Urban Water Management Plan, EBMUD require d
approximately 2 38 mgd of water to supply all its service areas in 2020. After taking into account conservation and other water recycling programs that each city is expected to adopt on their own, EBMUD still require d 181 mgd of water to meet demand (see Table 6.3 -1). By 2040, this demand is expected to increase by 16 percent to 277 mgd.
EBMUD evaluated several different scenarios to assess its need for water under potential future conditions. The results of evaluation indicate that under base condition assumptions, EBMUD can meet customer demand out to 2050 during normal years and single dry years; however, during multi -year droughts, even with customer demand reduction measures in place, EBMUD will need to obtain supplemental supplies to meet customer demands, including Central Valley Project water from the American River .
To improve water supply reliability in future droughts, EBMUD is adopting a multi-pronged approach to reduce water demand, increase water storage capacity, and find alternative sources of water supply. Some ongoing programs include Seawater
Desalination Research, and Groundwater Banking.
Table 6.3-1 Projected Water Demand and Supply in EBMUD Service Area1 2020 2030 2040
Population
EBMUD Service Area Population 1,405,000 1,542,000 1,704,000 San Pablo Population 32,127 33,580 34,950
Percent of San Pablo to EDMUD Population 2.3% 2.2% 2.1% Demand
Total EBMUD Water Demand (mgd) 238 254 277
Adjustment for Conservation (mgd) -48 -58 -61
Adjustment for Recycled Water (mgd) -5 -6 -9
EBMUD Planning Demand 181 190 201
San Pablo's Planning Demand2 (mgd) 4.2 4.3 4.3
1EBMUD service areas include both incorporated and unincorporated areas in Alameda and Contra Costa counties. 2 San Pablo-specific water demand data were not available from EBMUD. Therefore, San Pablo existing and future water demand was estimated to be proportionate to the city’s share of total service area population. E.g. In 2020, San Pablo’s population is 2.3 percent of the service area total, so water demand is also estimated to be 2.3 percent of the total demand.
Source: East Bay Municipal Utilities District, Urban Water Management Plan 2020; City of San Pablo, 2024.
San Pablo General 2035
6-20
Water Conservation
Water conservation and recycling measures are critical elements of EBMUD’s water management plan. The agency takes a
rigorous approach to water conservation, and expects to conserve and recycle about 66 mgd of water annually, equivalent to a 37.5 percent reduction of the annual demand by 2050 . EBMUD
promotes water conservation through education and outreach as well as offering water conservation programs that help residential and business customers save money and increase efficiency. Its water conservation programs include free water audits, r ebates for water-conserving faucets , aerators, and showerheads , rebates for high- efficiency irrigation equipment upgrades, and grants for drought- tolerant landscaping in public areas. In addition to its residential and business customers, EBMUD also works directly with schools, civic groups, and cities to help them reduce water use and recycle.
While the City of San Pablo does not offer financial incentives as EBMUD does, it promotes water conservation through other means, including city regulations requiring new and remodeled homes to install high -efficiency toilets and showe rheads, requiring drought -tolerant landscaping on new development projects, and incentives such as rebates for lawn conversions, irrigation equipment, and grey water usage amongst others . The City also regularly publishes water conservation and recycling information in its newsletters to promote the use of water recycling systems and remind residents of EBMUD rebate and grant programs.
Single-family homes with lawns can help conserve water by watering in the morning when the sun is low and by avoiding windy days.
Chapter 6: Parks, Schools, Community Facilities & Utilities 6-21
WASTEWATER
Wastewater treatment and disposal services in the city are provided by the West County Wastewater District (WCWD).
WCWD has a service area of 16.9 square miles which includes the City of San Pablo. The wastewater treatment plant located in North Richmond has a capacity of 12.5 mgd. The average influent flow is about 6.9 mgd, but some months approached plant capacity as summarized in Table 6.3-2. The sewer lines in the city are generally made from vitrified clay pipe and some ductile iron. Most of the collection system infrastructure is more than 50 years old, but the oldest pipelines are progressively being replaced or rehabilitated through the District’s Priority Pipes Project.
According to WCWD’s District Engineer, there are no current or anticipated problems with treatment quality or standards and the current infrastructure is sufficient to meet existing demands.
However, because infrastructure is designed based on current zoning classifications (which allow lower density than what is anticipated at buildout ); larger pipes will be required if new developments generate higher flows than anticipated. The WCWD is continuously updating its facilities and has been replacing and upgrading defective and deficient pipelines in the San Pablo Planning Area in accordance with its 2023 Collection System Rehabilitation and Replacement Plan .
Influent Flow
Month Average (mgd) Total (million gallons)
January 8.0 252.0
February 13.4 375.1
March 12.0 378.0
April 8.7 261.3
May 9.0 265.0
June 8.0 239.9
July 8.0 237.0
August 8.0 242.0
September 7.0 224.4
October 8.0 260.0
November 8.0 248.0
December 9.0 273.0
Average 8.9 271.3
mgd= million gallons per day
Source: West County Wastewater District, 2010.
Table 6.3-2 Wastewater Flows in West County Wastewater
District, 2009
San Pablo General Plan 2035
6-22
WCWD has an industrial pre-treatment program and monitors all industrial discharges. The treated effluent from the plant is pumped to a de -chlorination facility at Point Richmond where it is combined with the City of Richmond’s Municipal Sewer District (RMSD) effluent. The combined effluent is discharged in a deepwater outfall into San Francisco Bay at Point
Richmond. Approximately 3.5 mgd of the WCWD effluent is recycled by EBMUD for reuse at the Chevron Refinery and
0.7mgd is recycled for irrigation at the Richmond Country Club Golf Course.
STORM DRAINAGE
In San Pablo, storm water runoff is conveyed via a combination of natural and man-made drainage infrastructure. including creeks and drains. Rainwater is transported via overland flow, gutters, storm drain inlets, bioretention facilities, pipes and outfalls to one of three creeks (Wildcat Creek, San Pablo Creek, or Rheem Creek). . Creeks in San Pablo are prone to flooding due to their shallow bed and high water table. The City has limited control over the creek flow and capacity because large portions of the creeks are located on private property. In addition to creek flooding, the Old Town area of the City can be prone to flooding during the rainy season. To prevent flooding, the City encourages homeowners along the creeks to help keep the creeks clear of obstructions and to purchase flood insurance through the National Flood Insurance Protection program, in which the City is a participating jurisdiction. Also, all properties that are within the flood zone are required to design any construction projects to comply with the City’s Flood Ordinance and federal and state requirements for
floodproofing.
The City of San Pablo participates in the Contra Costa Clean Water Program, which assists countywide efforts in
implementing the City’s National Pollution Discharge
Elimination System (NPDES) permit . The NPDES permit is issued by the San Francisco Bay Regional Water Quality
Control Board to require actions that prevent the discharge of non-stormwater into the storm drain system and watercourse .
ELECTRICITY AND GAS
Pacific Gas & Electric (PG&E) currently provides gas and electric services to San Pablo homes and businesses. The utility company obtains its energy supplies from nuclear power plants, wind and solar farms, and o ther largely renewable sources in northern California and delivers electricity through hig h Chapter 6: Parks, Schools, Community Facilities & Utilities 6-23
voltage transmission lines. Electrical power is delivered to homes via various distribution feeders located throughout the city.
The availability of electricity and gas services is not expected to become an issue during the General Plan planning horizon since all homes are located within urban infill areas close to existing development.
SOLID WASTE COLLECTION AND RECYCLING
Solid waste collection service is provided by Richmond Sanitary Services, a subsidiary of Republic Services, I nc. The solid waste collection services agreement is managed by the City of San Pablo. Solid waste post-collection services (i.e., the processing of waste material after collection for recycling, composting or landfill) is managed by the West Contra Costa Integrated Waste Management Authority ( WCCIWMA), also known as
RecycleMore.
RecycleMore is a joint powers agency created by the Member Agencies which include the cities of El Cerrito, Hercules, Pinole, Richmond, San Pablo and portions of unincorporated Contra Costa County (i.e. , El Sobrante, North Richmond, Tara Hills, Rollingwood, East Richmond Heights, Bayview, and Montalvin Manor). Within its jurisdiction, the Authority provides waste processing management services of the franchised waste stream which includes the landfill, recyclables, composting, and Household Hazardous Waste (HHW). RecycleMore is also
charged with implementing and making su re the region is in compliance with California State Laws such as AB 939, AB 1826, and SB 1383, which mandate reducing the amount of waste materials going to landfill.
Republic Inc. owns and operates a 21-acre site in Richmond including the West Contra Costa County Sanitary Landfill, the Golden Bear Transfer Station, a household hazardous waste facility, and an integrated resource -recovery facility.
Currently, the majority of West County’s waste is brought to the Keller Canyon Landfill in Pittsburg. The Keller Canyon facility has a maximum capacity of 75 million cubic yards and has about 25 years of additional capacity.
While landfill capacity is not an issue, the service agreements between RecycleMore and Republic Services for solid waste disposal, recycling processing, and composting are due to expire on June 30, 2025 . RecycleMore released an RFP in 2024 and is soliciting bids for post -collection services for the West County service area.
Trash collection in San Pablo is provided by
Richmond Sanitary Services.
San Pablo General Plan 2035
6-24
Recycling and Hazardous Wastes
Recycling and material sorting are carried out at the Richmond facility prior to sale and shipment to manufacturers. Richmond Sanitary Services currently offers weekly service for all collection carts. San Pablo has a three-bin sorting system with a comingled recyclable waste (blue cart) , green/compost waste (green cart), and landfill waste.
The household hazardous waste facility at 101 Pittsburg Avenue, Richmond, accepts a variety of hazardous and
universal wastes products such as paints, solvents, fuels, cleaners, and pesticides. There is no door -to-door hazardous waste collection service in San Pablo but residents and non - profits may drop off their household hazardous waste at no cost. A mobile collection service is available for disabled residents and senior s by appointment.
Solid Waste Diversion
Solid waste diversion is the process of diverting waste from landfills through reuse, recycling and composting. The State of California requires that all jurisdictions meet a 50 percent waste reduction mandate as established by the Integrated Waste Management Act of 1989. In 2007, the California Department of Resources Recycling and Recovery (CalRecycle) changed the method of calculating diversion rates to one based on the average per capita solid waste disposal rate. Since the goal is to reduce the amount of waste generated per person, a lower per capita rate is better than a higher per capita rate. The West County WMA had consistently been compliance with meeting the State requirement.
In 20 22, the West County WMA had a residential per capita disposal rate of 4. 2 pounds per person per day (PPD) and an employment per capita disposal rate of 15.5 PPD, which met the targets set for that year. In 20 23, the West County WMA once again met and exceeded the targets by achieving the residential per capita and employment per capita disposal rates of 4.4 PPD and 16.3 PPD, respectively.
Household hazardous wastes such as paints,
solvents, and thinners, may be dropped off at
no cost at the Richmond household
hazardous waste facility.
Chapter 6: Parks, Schools, Community Facilities & Utilities 6-25
Table 6.3-3 West Contra Costa Integrated Waste
Management Authority Disposal
Rates
Population Disposal
(PPD2
Employment Disposal
(PPD)
Year Target Annual Target Annual
2021 5.4 4.2 22.1 16.6
2022
2023
5.4 4.2
5.4 4.4
22.1 15.5
22.1 16.3
2 PPD = Pound per person per day.
Source: CalRecycle, 2023.
GUIDING POLICIES
PSCU-G-5 Continue to ensure the successful provision,
maintenance, and operation of City-owned public
infrastructure and utilities.
PSCU-G-6 Support the efficient use and conservation of water.
PSCU-G-7 Maintain a comprehensive storm drainage
system to protect life and property.
PSCU-G-8 Enhance waste reduction and recycling in San
Pablo.
IMPLEMENTING POLICIES
Water Supply and Conservation
PSCU-I-22 Coordinate with East Bay Municipal Utilities
District (EBMUD) to provide an adequate and
clean water supply.
The City will work with EBMUD to update and
support compliance with the District’s Water
Supply Management Program.
PSCU-I-23 Establish water saving and conservation
standards for new development in compliance
with CalGreen , the Water Eff icient Landscape
Ordinance (WELO) and other codes .
Standards may include, but are not limited to,
the following:
• Requiring new residential developments to
install low-flush toilets and water saving shower
heads;
San Pablo General Plan 2035
6-26
• Requiring new commercial, retail, and industrial
developments to install low -flush toilets and
auto shut-off faucets in public bathrooms; and
• Requiring the installation of water meters on all
new multifamily residential units, mobile
homes, and common interest developments,
whether owner-occupied or rented, as well as on
existing multifamily units at the time of sale, or
at the time of condominium conversion as a part
of the subdivision mapping process.
The City will work with property owners to increase
awareness of both the environmental and the
economic advantages of sub-metering. Properly
done, sub -metering of multifamily buildings can cut
apartment resident demand by 15 percent.
PSCU-I-24 Reduce water use in municipal buildings and City operations.
The City will develop a schedule and budget for the
retrofit of older municipal buildings with water
conservation features, such as auto shut-off faucets
and water saving irrigation systems.
PSCU-I-25 Consider adoption of a Water Conservation
Ordinance to promote the conservation of water
and reduce water waste in San Pablo, beyond the
water conservation measures already included in
Water Efficient Landscape Ordinance ( WELO),
adopted in 2020.
• Require commercial and public right -of-way
projects to submit planting plans, irrigation
plans, irrigation schedules and water use
estimates for City approval prior to issuance of
building permits; and
• Require industrial projects to submit plans for
water recycling and explain how water use will
meet requirements of the National Pollutant
Discharge Elimination System program during
the plan review process. They are also required
to submit irrigation plans for proposed
landscaping.
The Water Conservation Ordinance will establish
restrictions on water uses such as lawn and
landscape watering and the filling of fountains and
swimming pools, as well as penalties for violations.
Chapter 6: Parks, Schools, Community Facilities & Utilities 6-27
It also will establish consumption reduction
measures to be adopted when State or
countywide water rationing is in effect.
PSCU-I-26 Promote water conservation through public
education, including but not limited to the
following:
• Encouraging educators to include water
conservation in their curriculums;
• Promoting the use of drought resistant
plants and turf in yards and gardens;
• Highlighting the availability of EBMUD
water conservation programs to residents,
including the Lawn Conversion Rebate, the
Landscape Design Assistance Program, the
Flowmeter and Graywater Rebates, and
other programs; and
• Providing tips to households and businesses
on water conservation.
The City will use its newsletter and website to
promote water conservation, and may solicit
assistance from EBMUD, environmental
groups, and/or concerned residents to provide
education materials or staff time to assist in
public outreach efforts.
PSCU-I-27 Consult with EBMUD about starting a
recycled water program for San Pablo to
irrigate parks, recreational facilities, and
landscaping.
Water recycling is part of EBMUD’s water
supply portfolio, as any demand met with
recycled or non- potable water reduces the
demand for high-quality potable water.
PSCU-I-28 Provide educational materials to support the
development of safe and effective on -site gray
water systems for local homes and businesses,
consistent with State codes and the California
Plumbing Code .
Gray water is generally defined as untreated
household waste water that comes from bath
tubs, showers, bathroom wash basins, and
clothes- washing machines. Not only does the re-
use of gray water conserve treated tap water, but
gray water can also benefit plants because it
San Pablo General Plan 2035
6-28
often contains nutrients such as nitrogen
and phosphorus. The most current
California gray water standard established
in the State Plumbing Code allows single
fixture systems to be installed without
permits. The City will let residents know
these systems do not require permits.
PSCU-I-29 Provide educational materials to support
the development of inexpensive and
effective rainwater harvesting systems for
local homes and businesses.
Rainwater harvesting systems may be as
simple as a carefully contoured landscape
that directs rainfall to planted areas and
prevents water from leaving the property.
The systems may also be more complex, with
storage containers that collect run off from
roofs and other hard surfaces and
distribution lines to apply the water
elsewhere on the property. Similar to gray
water, harvested rainwater may be applied
directly for non-potable uses, such as toilet-
flushing and non-edible landscape
irrigation.
Wastewater and Stormwater
PSCU-I-30 Require, as a condition of project
approval, stormwater drainage and sewer
improvements in proportion to a project’s
impacts, including upgrades,
replacements, or repairs to older
stormwater collection systems, as
necessary and as indicated by agency and
City Engineer review.
PSCU-I-31 Maintain master storm drain system maps
that identify locations where easements
should be reserved for eventual
installation of pipes and structures to
ensure appropriate storm drainage
management.
PSCU-I-32 Coordinate with the West County
Wastewater District to address planning
capacity and identify deficiencies in the
waste water collection system.
Chapter 6: Parks, Schools, Community Facilities & Utilities 6-29
PSCU-I-33 Update zoning standards to minimize storm
water runoff rates and volumes, control water
pollution, and maximize recharge of local
groundwater aquifers. New development will
be required to include features that reduce
impermeable surface area and increase
infiltration. Such features may include, but are
not limited to:
• Canopy trees or shrubs to absorb rainwater;
• Grading that lengthens flow paths and
increases runoff travel time to reduce the
peak hour flow rate;
• Removing curbs and gutters from parking
areas where appropriate to allow
stormwater sheet flow into vegetated areas;
• Permeable paving and parking area design;
• Stormwater detention and retention basins
to facilitate infiltration; and
• Integrated or subsurface water retention
facilities to capture rainwater for use in
landscape irrigation and other non -potable
uses.
Other Utilities
PSCU-I-34 Continue to work with the Pacific Gas &
Electric Company on undergrounding of
electric lines where feasible.
PSCU-I-35 Encourage utility agencies to use existing
transmission corridors for future power
transmission line development.
PSCU-I-36 Review all new development for
opportunities to incorporate high quality
wiring, fiber optics, and adaptable systems,
such as pre -wiring for photovoltaic and dual
plumbing for recycled water use.
PSCU-I-37 Encourage telephone and communication
system providers to upgrade and incorporate
state of the art communication technologies,
such as wireless internet technology,
throughout the city.
San Pablo General Plan 2035
6-30
Solid Waste Collection and Recycling
PSCU-I-38 Per California State Law, r equire adequate
recycling collection services in all residential
and non-residential buildings .
PSCU-I-39 Promote the importance of waste reduction
and recycling, as well as the safe disposal of
hazardous materials, to San Pablo residents
and businesses owners.
Avenues of communication of waste reduction
and conservation measures may include online
outreach, articles in local newsletters, , and the
City website.
PSCU-I-40 In conformance with State Law, ensure that
provisions for recycling are made part of the
building design for new multifamily
development
Require multifamily building property
owners to provide recycling containers in
refuse collection areas that are within
buildings or screened so as not to be visible from
public streets.
PSCU-I-41 Reduce construction waste in San Pablo by
applying the State required Waste
Reduction and Construction Debris
Recycling measures under CalGreen that
require developers to:
• Reuse building materials, or use materials
with recycled content, to the maximum
extent possible;
• Submit a ‘Construction and Demolition
Materials Management Plan’ indicating
the estimated volume or weight of project
construction and demolition materials, by
materials type, to be generated; the
maximum volume or weight of materials
the project will divert; the vendor or
diversion facility; and the volume or
weight of residual materials that would
be transported for disposal in a landfill;
• Schedule time for deconstruction and
recycling activities to take place during
project demolition and construction
phases; and
Chapter 6: Parks, Schools, Community Facilities & Utilities 6-31
• Divert at least 65 percent of recyclable
debris (such as paper -based boards, ceiling
tiles, wood, or aluminum) generated from
projects from landfill disposal to reuse or
recycling options.
Construction and demolition materials
constitute approximately 13 percent of the
materials of the waste stream in the State and
these materials have significant potential for
waste reduction and recycling.
PSCU-I-42 Reduce waste production in all City operations by using post -consumer recycled paper and
other recycled materials.
The City has an Environmentally Preferable
Purchasing Policy in compliance with SB 1383
that requires specific post-consumer purchasing.
San Pablo General Plan 2035
6-32
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7 OPEN SPACE &
CONSERVATION
The purpose of the Open Space and Conservation Element is to provide policy guidance to protect, preserve, and enhance the City’s natural and cultural resources. Topics addressed include open space, biological resources, water resources, and cultural resources. Goals and policies in this Element also address air quality and reduction of greenhouse gases.
7.1 Open Space Resources
An open space is defined as any parcel of land or body of water that is essentially unimproved and undeveloped, including parks, ridges and slopes, creeks, unique natural areas, wildlife habitats, and areas suitable for nature study. State planning law (Government Code Section 65560) pro vides a structure for the preservation of open space by identifying four open space categories:
• Open space for public health and safety, including, but not limited to, areas that require special management or
regulation due to hazardous or special conditions. This type of open space might include: earthquake fault zones, unstable soil areas, floodplains, watersheds, areas
presenting high fi re risks, and areas required for the protection of water quality and water reservoirs.
• Open space for the preservation of natural resources, including, but not limited to, areas required for the
preservation of plant and animal life, such as habitat for fish and wildlife species; areas required for ecologic and other scientific study purposes; rivers, streams, and creeks, lakeshores and banks of rivers and streams; and watershed lands.
• Open space used for the managed production of resources, including, but not limited to, forest lands, rangeland, San Pablo General Plan 2035
7-2
agricultural lands, and areas of economic importance for the production of food or fiber; areas required for recharge of groundwater basins; marshes, rivers, and streams that are important for the management of commercial fisheries; and areas containing major mineral deposits.
• Open space for outdoor recreation, including, but not limited to, areas of outstanding scenic, historic, and cultural value; areas particularly suited for park and recreation purposes, such as access to lakeshores, beaches, rivers, and streams; and areas that serve as links between major re creation and open space reservations, including utility easements, banks of rivers and streams, trails, and scenic highway corridors.
Most open space areas serve more than one use. Neighborhood parks, for example, serve a recreational function and provide a habitat for birds or plants. The many functions of open space underscore the importance of careful land use planning to preserve limited open space resources for the enjoyment of current and future generations.
Natural open spaces are important, not only as habitats for plants and animals, but also for their aesthetic value.
Chapter 7: Open Space & Conservation
7-3
EXISTING OPEN SPACE
Although San Pablo is largely urban, the City does have open space, including neighborhood and community parks, pockets of open space near creek banks, and on hillsides along San Pablo Dam Road. Other open space areas include the 58-acre St Joseph Cemetery and a greenway buffer on both sides of I -80. Most existing open space areas were created for passive recreation or nature conservation. Others are pockets of space left over from development 20 or 30 years ago or are undeveloped because of seismic or safety considerations (such as those on steep slopes).
According to the California Environmental Protection Agency (CalEPA) large portions of San Pablo are designated as a disadvantaged community. As such, it is important that residents have access to open space in a manner that considers social, economic, and racial equity.
The following policies address preservation and enhancement of open space generally.
GUIDING POLICIES
OSC-G-1 Acquire, protect, and enhance open space, including hillsides, for the benefit of future generations.
OSC-G-2 Work to preserve undevelopable open space and hillside areas to meet multiple needs, including bike
and pedestrian linkages, stormwater drainage,
wildlife habitat, and active and passive recreation
opportunities.
OSC-G-3 Strive to provide access to open spaces for all residents in a manner that considers social,
economic, and racial equity.
IMPLEMENTING POLICIES
OSC-I-1 Work with property owners to acquire or dedicate land that could be developed as recreational open
space, consistent with the General Plan Land Use
Diagram.
San Pablo General Plan 2035
7-4
OSC-I-2 Continue to identify, preserve, and enhance scenic vistas to and from hillside areas and other visual
resources.
New development should be designed to minimize
obstructions of scenic vistas and preserve or enhance
important attributes of view corridors.
OSC-I-3 Recognize the importance of Alvarado Park as a gateway to Wildcat Canyon Regional Park and an
important recreational and open space resource.
Facilitate access to this open space network.
7.2 Biological Resources
Although San Pablo is one of the smallest and most urbanized cities in Contra Costa County, valuable biological resources still exist within the Planning Boundary. These are sometimes located in pockets of open space within city limits, but more commonly found along riparian corridors of vegetation such as San Pablo Creek. Figure 7 -1 illustrates identified biological resources in the area. These resources are discussed below.
FLORA AND FAUNA
The City of San Pablo lies in the Bay Area -Delta bioregion.
According to the California Wildlife Habitat Relationships system (an information system for California’s terrestrial vertebrates and their habitat), the primary habitat types in San Pablo are urban, annual grassland, coastal oak woodland, eucalyptus, and valley foothill riparian. Of the five habitat types, the most prevalent type is urban, which covers the majority of the Planning A rea and is contiguous to the north, west, and south with the neigh boring cities and districts of Richmond, Rollingwood, El Sobrante, and Pinole.
Small patches of annual grassland, eucalyptus, and coastal oak woodland habitat are found on the east end of the Planning Area. These patches are found in increasing quantities towards the direction of Alvarado Park and Wildcat Canyon Regional Park. Small grassland patches are also found isolated
throughout San Pablo, but are very disturbed and of low quality.
§¨¦80
City of
Richmond
Lake
Elementary
School
City of
Richmond
21ST ST
11TH ST
SAN PABLO AVE
17TH ST
VALE RD
DOVER AVE
20TH ST
STANTON AVE
PINE AVE
MINER AVE
19TH ST
16TH ST
15TH ST
AMADOR ST
RIVERS ST
SUTTER AVE
EMERIC AVE
12TH ST
14TH ST
HILLCREST RD
ROLLINGWOOD DR
13TH ST
SANFORD AVE
LAKE ST
RIDGE RD
CALIFORNIA AVE
22ND ST
18TH ST
BUSH AVE
JOHN AVE
WILLOW RD
ALPINE RD
BROOK WAY
PALMER AVE
TYLER ST
ESPANOLA CT
VAN NESS ST
POWELL ST
ARUNDEL WAY
DEVON WAY
MARIN AVE
MASON ST
WILCOX AVE
STANDARD ST
POST AVE
CHEVY WAY
ALFREDA BLVD
STONE ST
BAYO VISTA AVE
KELLEY AVE
FORDHAM ST
GREENWOOD DR
MANOR DR
YUBA AVE
MANCHESTER AVE
PULLMAN ST
FOLSOM AVE
MISSION AVE
AVON LN
VILLA DR
MISSION BELL DR
MACARTHUR AVE
MORROW DR
BEAU RIVAGE
BOWHILL LN
DOUGLAS ST
MIFLIN AVE
TRENTON BLVD
BONITA RD
MERRITT AVE
GLENLOCK ST
DEL CAMINO DR
FILLMORE ST
PABLO VISTA AVE
LOVEGROVE AVE
GLENN AVE
COLIN ST
ACAPULCO DR
MARELIA CT
BANCROFT LN
MONTOYA AVE
VENTURA AVE
ABELLA CIR
CLARE ST
JOEL CT
GERALD AVE
EVENS AVE
MANZANILLA DR
CARLFIELD ST
CORTE ST
OHARE AVE
CONTRA COSTA AVE
CASINO AVE
RUMRILL RD
WYMAN ST
RIVERSIDE AVE
REGINA AVE
BARRANCA ST
HUMBOLDT ST
E VICTORIA CT
SHASTA AVE
HARBORVIEW AVE
CLEMENT AVE
CONNECTICUT AVE
CHATTLETON LN
UNIVERSITY AVE
BARBARA LN
KIRK LN
JEAN CT
MADRONE WAY
WESTGATE CIR
W VICTORIA CT
FRIEDA CT
BROOKSIDE AVE
MONTE BUENA ST
DODSON ST
JUDITH CT
WANLASS AVE
DRAKE WAY
LARCHMONT LN
18TH ST
19TH ST
20TH ST19TH ST
BUSH AVE
15TH ST
15TH ST
21ST ST
18TH ST
SHASTA AVE
GLENN AVE
17TH ST
MERRITT AVE
RIVERSIDE AVE
14TH ST
18TH ST
DOVER AVE
19TH ST
22ND ST
MASON ST
15TH ST
16TH ST
17TH ST
POST AVE
LAKE ST
20TH ST
21ST ST
RIVERS ST
YUBA AVE
19TH ST
22ND ST
16TH ST
17TH ST
MINER AVE
ROSE ARBOR A VE
Bayview A ve
BOLDUC CT
CAPITO
LH
ILL AVE
W ESTVIEW
PL
N
ARLINGTONBLVD
H
ILLCREST
RD
MI
FFIN
AVE
EL PORTAL DR SAN PABLO DAM RD
ROAD 20
ROAD 20
BROOKSIDE DR
MARKET AVE
MARKET ST CHURCH LN
CHURCH LN
23RD ST
VALENCIA WAY
BROADWAY
ROAD 20 RUMRILL BLVD
CHESLEY AVE
RICHMOND PKWY
RICHMOND PKWY
John
Herbert
Davis Park
Wanlass
Park
San Pablo CreekWildcat Cr eek
BURLINGTON NORTHERN SANTA FE RR
UNION PACIFIC RR San Pablo
Song Sparrow
Western
Bumble Bee
California
Ridgway's Rail
San Pablo
Vole
Long-Styled
Sand-Spurrey
Alameda Whipsnake
San Pablo
Song Sparrow
SOURCE: Special Status Species, California Natural Diversity Database (CNDDB), 2025; Critical Habitat for Threatened & Endangered Species, US Fish & Wildlife Service (USFWS), 2025; City of San Pablo, 2024; Contra Costa County GIS, 2024; Dyett & Bhatia, 2024
0 0.2 0.40.1
Miles
J:\GISData\581_SanPablo_GP\GIS\Projects\GeneralPlan\General Plan Map Updates\Figure 7-1 Special Status Species.mxd Figure 7-1:
City Limits
Sphere of Influence
Major Roads
Minor Roads
Railroads
Vegetation Type
Moderate Grasslands
Non-Native / Ornamental Grass
Non-Native / Ornamental Hardwood
Coast Live Oak Forest / Woodland
Central Coast Riparian Forests
Blue Oak Forest / Woodland
Eucalyptus
Urban
Special Status Species (CNDDB)
San Pablo Song Sparrow
Western Bumble Bee
Long-Styled Sand-Spurrey
California Ridgway's Rail
San Pablo Vole
Critical Habitat (USFWS)
Alameda Whipsnake (Striped Racer)
Vegetation and
Special Status Species
7-6
San Pablo General Plan 2035
The waterways that traverse the Planning Area —the San Pablo, Wildcat, and Rheem creeks —support the valley foothill riparian habitat. Typical species along San Pablo and Wildcat creeks include willow and coast live oak, intermixed with boxelder, elderberry, California bay, coyote brush, blackberry, watercress, and poison oak. Ivy, an invasive and non -native species, can also be found along parts of San Pablo Creek. The riparian corridors along the creeks generally do not exceed 100 feet in width, except on the west end of the city along Wildcat Creek. Here, there is a larger clearing containing a number of oak trees and a small band of grassland dominated by soft chess, ripgut grass, and foxtail.
Table 7.2-1 Habitat Types
Name Total Acres
Urban 235
Coastal Oak Woodlands 18
Annual Grassland 125
Valley Foothill Riparian 79
Eucalyptus 9
Source: Environmental Science Associates, 2009.
San Francisco Bay is the largest estuary on the west coast of the United States.
Its 1,600 square miles of wetlands and open water are home to at least 800,000 birds at any given time, including the Northern harrier shown above. (Photo: Nick Contonicolas)
Chapter 7: Open Space & Conservation
7-7
Fauna found in the Planning Area are generally those species that have adapted to human habitation, such as starlings, golden crowned sparrows, and rock pigeons, or those species that use the habitat in San Pablo to forage or nest while on their migratory route, such as the San Pablo vole, salt-marsh harvest mouse, northern harrier, California clapper rail, short eared owl, white tailed kite, and salt marsh wandering shrew.
Steelhead trout, Salmonid, and carp can also be found in San Pablo Creek, despite their inability to migrate up and down the creeks due to the presence of concrete box channels. 11 Besides fish, birds, and insects, there is little evidence of other species in the city. No large mammalian species or predators have ever been found in San Pablo due to the city’s small natural habitat.
The San Pablo song sparrow is a unique subspecies of sparrows that can be found only in San Pablo. The species is currently classified as a candidate for protection due to habitat loss. (Photo: Ken Thomas)
REWILDING
Rewilding is the process of restoring an area of land to its natural uncultivated state. Examples of rewilding in San Pablo could include opportunities to preserve, enhance, and expand an integrated network of open space to support beneficial uses, such as habitat, recreation, natural resources, historical and 11 Carp is a non-native species to San Pablo. Their presence in San Pablo Creek is probably the result of people releasing them into the Creek.
San Pablo General Plan 2035
7-8
tribal resources, water management, and aesthetics. The recently completed Wildcat Creek Restoration and Greenway Trail is an example of a successful inner-city rewilding effort.
SPECIAL STATUS SPECIES
Special status species are those plants and animals that, because of their acknowledged rarity or vulnerability to various causes of habitat loss or population decline, are recognized in some fashion by federal, State, or other agencies as deserving specia l consideration and protection. According to records maintained by the California Natural Diversity Data Base, there is only one special status species in the Planning Area, the San Pablo song sparrow ( Melospiza melodia samuelis ). Although the species is widespread and common, the San Pablo subspecies is endemic to California and confined to the tidal marshes of San Pablo Bay.
The National Marine Fisheries Service has also reported that Steelhead trout (Oncorhynchus mykiss) occur in both San Pablo and Wildc at creeks. The Service has listed this species as a threatened species in the region . Table 7.2 -2 summarizes the type of special status species within the Planning Area and Figure 7-1 shows their locations.
Table 7.2-2 Special Status Species
Scientific Name
(Common Occurrence Federal State
Name) Presence Type Listing Listing
Melospiza
melodia
samuelis
Presumed
extant
Natural/ native
occurrence
None Special
concern
(San Pablo
song sparrow)
Oncorhynchus
mykiss
Presumed
extant
Natural/ native
occurrence
Threatened None
(Steelhead)
Source: California Natural Diversity Database, 2024; National Marine Fisheries Service, 2005
GUIDING POLICIES
OSC-G-4 Protect and enhance wetlands, creek systems, and rare and endangered species and their habitats.
Chapter 7: Open Space & Conservation
7-9
IMPLEMENTING POLICIES
OSC-I-4 Require protection of sensitive habitat areas and “special status” species through measures
implemented in new development in the
following order: 1) avoidance, 2) on -site
mitigation, and 3) offsite mitigation, and require
assessments of biological resources prior to
approval for any development within a creek
corridor.
The City will coordinate with the Army Corp of
Engineers, U.S. Fish and Wildlife Service, National
Marine Fisheries Service, California Department of
Fish and Game, and Regional Water Quality
Control Board to ensure City staff is providing
developers with the best guidance and standards for
project design to avoid impacts to creeks, wetland
features, woodlands, or other sensitive natural
features.
OSC-I-5 Develop a list of native plants and landscaping guidelines that residents and business owners
can use for public and private landscaping plans.
Make this list and guidance accessible through
the Planning Department, the Public Library, and
the City website.
Urban landscaping design and planting choices
should be managed to maximize ecological and
health benefits for the whole community.
OSC-I-6 Prohibit the use of invasive plant species, such as pampas grass and ivies, adjacent to wetlands,
riparian areas, or other sensitive habitat.
Invasive plants are introduced species that can
thrive in areas beyond their natural range of
dispersal. These plants are characteristically
adaptable, aggressive, and have a high reproductive
capacity. Their vigor combined with a lack of
natural enemies often leads to outbreak populations
that overwhelm local plant species.
OSC-I-7 Preserve and protect undeveloped hillside areas for their potential habitat value and as a visual
and open space resource.
San Pablo General Plan 2035
7-10
OSC-I-8 If site work or construction (i.e., ground clearing or grading, including removal of trees or shrubs)
activities are to occur during the nesting or
breeding season of protected animal species, the
appropriate studies should be conducted prior to
construction activities. The results/impacts of
such studies should be followed to ensure
compliance with pertinent regulations.
OSC-I-9 Explore opportunities for rewilding in San
Pablo. This could include opportunities to
preserve, enhance, and expand an integrated
network of open space to support beneficial
uses, such as habitat preservation, recreation,
natural resources, historic and tribal resources,
water management, and aesthetics.
OSC-I-10 Consider establishing a natural communities
conservation plan to provide for coordinated
mitigation of the impacts of new development.
OSC-I-11 For any development projects involving removal of mature trees and/or demolition of vacant
buildings (both potential habitats for special -
status bats), require a pre-construction survey by
a qualified wildlife biologist to determine if bats
are present usi ng an acoustic detector. Require
implementation of feasible recommendations of
the biologist on removal of trees with signs of bat
activity during a period least likely to adversely
affect the bats, or the creation of a “no
disturbance” buffer, if a viable alternative.
7.3 Water Resources
Water resources include groundwater and surface water
resources. Groundwater refers to water found beneath the water table in the form of saturated soil. In some parts of northern California, groundwater may also be found in underground aquifers. Surface water refers to water collecting on the Earth’s surface such as creeks or ponds. All surface water eventually percolates into the soil, evaporates into the air, or flows into the sea.
Chapter 7: Open Space & Conservation
7-11
GROUNDWATER BASIN
San Pablo is located atop the East Bay Plain Subbasin. The subbasin is a northwest trending alluvial plain bounded on the north by San Pablo Bay, on the east by the contact with Franciscan Basement rock, on the west by San Francisco Bay, and on the south by the Niles Cone Groundwater Basin. Several creeks, including San Pablo Creek and Wildcat Creek in the Planning Area, flow across the subbasin. Average precipitation in the subbasin ranges from about 17 inches in the southeast to greater than 25 inches along the eastern boundary, most of which occurs between the months of November and March.
According to the Department of Water Resources, the subbasin has an underground storage capacity of 2,670,000 acre -feet at a level of 350 feet above mean sea level, and extending to a depth of 1,000 feet below mean sea level. Over the years, the subbasin aquifer water levels have varied between 10 to 140 feet below mean sea level. The lowest recorded water level occurred in 1962. Water levels in the aquifers generally ri se and fall in tandem with periods of abundant rainfall or drought. Since the majority of East Bay cities obtain their water from surface reservoirs or the Mokelumne River, extraction from wells only account for a fraction of the groundwater storage .13
GROUNDWATER QUALITY
In general, groundwater throughout the subbasin is suitable for urban and agriculture use. The groundwater quality rarely exceeds the maximum contaminant levels recommended by the State Water Resources Control Board. However, 15 of 29 wells in the subbasin had Total Dissolved Solids greater than 500 milligrams per liter (the maximum) when they were tested in 2002. Similar results were found in 2022 East Bay Plan Subbasin Groundwater Sustainability Plan reported records of wells over 50 feet deep in the El C errito/San Pablo/Richmond area. As such, groundwater is generally not recommended for drinking .
Besides contaminant levels, groundwater use is complicated by other factors including high salt levels due to the proximity to San Francisco Bay, and the risk of contamination through the 13 California Groundwater Bulletin 118, Santa Clara Groundwater Basin, 2004.
Aquifers are natural
underground formations
that are saturated with
water, and from which
water can be withdrawn.
§¨¦80
City of
Richmond
Lake
Elementary
School
City of
Richmond
21ST ST
11TH ST
SAN PABLO AVE
17TH ST
VALE RD
DOVER AVE
20TH ST
STANTON AVE
PINE AVE
MINER AVE
19TH ST
16TH ST
15TH ST
AMADOR ST
RIVERS ST
SUTTER AVE
EMERIC AVE
12TH ST
14TH ST
HILLCREST RD
ROLLINGWOOD DR
13TH ST
SANFORD AVE
LAKE ST
RIDGE RD
CALIFORNIA AVE
22ND ST
18TH ST
BUSH AVE
JOHN AVE
WILLOW RD
ALPINE RD
BROOK WAY
PALMER AVE
TYLER ST
ESPANOLA CT
VAN NESS ST
POWELL ST
ARUNDEL WAY
DEVON WAY
MARIN AVE
MASON ST
WILCOX AVE
STANDARD ST
POST AVE
CHEVY WAY
ALFREDA BLVD
STONE ST
BAYO VISTA AVE
KELLEY AVE
FORDHAM ST
GREENWOOD DR
MANOR DR
YUBA AVE
MANCHESTER AVE
PULLMAN ST
FOLSOM AVE
MISSION AVE
AVON LN
VILLA DR
MISSION BELL DR
MACARTHUR AVE
MORROW DR
BEAU RIVAGE
BOWHILL LN
DOUGLAS ST
MIFLIN AVE
TRENTON BLVD
BONITA RD
MERRITT AVE
GLENLOCK ST
DEL CAMINO DR
FILLMORE ST
PABLO VISTA AVE
LOVEGROVE AVE
GLENN AVE
COLIN ST
ACAPULCO DR
MARELIA CT
BANCROFT LN
MONTOYA AVE
VENTURA AVE
ABELLA CIR
CLARE ST
JOEL CT
GERALD AVE
EVENS AVE
MANZANILLA DR
CARLFIELD ST
CORTE ST
OHARE AVE
CONTRA COSTA AVE
CASINO AVE
RUMRILL RD
WYMAN ST
RIVERSIDE AVE
REGINA AVE
BARRANCA ST
HUMBOLDT ST
E VICTORIA CT
SHASTA AVE
HARBORVIEW AVE
CLEMENT AVE
CONNECTICUT AVE
CHATTLETON LN
UNIVERSITY AVE
BARBARA LN
KIRK LN
JEAN CT
MADRONE WAY
WESTGATE CIR
W VICTORIA CT
FRIEDA CT
BROOKSIDE AVE
MONTE BUENA ST
DODSON ST
JUDITH CT
WANLASS AVE
DRAKE WAY
LARCHMONT LN
18TH ST
19TH ST
20TH ST19TH ST
BUSH AVE
15TH ST
15TH ST
21ST ST
18TH ST
SHASTA AVE
GLENN AVE
17TH ST
MERRITT AVE
RIVERSIDE AVE
14TH ST
18TH ST
DOVER AVE
19TH ST
22ND ST
MASON ST
15TH ST
16TH ST
17TH ST
POST AVE
LAKE ST
20TH ST
21ST ST
RIVERS ST
YUBA AVE
19TH ST
22ND ST
16TH ST
17TH ST
MINER AVE
ROSE ARBOR A VE
Bayview A ve
BOLDUC CT
CAPITO
LH
ILL AVE
W ESTVIEW
PL
N
ARLINGTONBLVD
H
ILLCREST
RD
MI
FFIN
AVE
EL PORTAL DR SAN PABLO DAM RD
ROAD 20
ROAD 20
BROOKSIDE DR
MARKET AVE
MARKET ST CHURCH LN
CHURCH LN
23RD ST
VALENCIA WAY
BROADWAY
ROAD 20 RUMRILL BLVD
CHESLEY AVE
RICHMOND PKWY
RICHMOND PKWY
John
Herbert
Davis Park
Wanlass
Park
San Pablo CreekWildcat Cr eek
BURLINGTON NORTHERN SANTA FE RR
UNION PACIFIC RR
BASIN NUMBER 2-009
SANTA CLARA VALLEY
SUBBASIN: 2-009.04
EAST BAY PLAIN
RHEEM
CREEK
SAN PABLO
CREEK
WILDCAT
CREEK
San Pablo Creek
Wildcat Creek
San Pablo Cre ekWildca t C reek
San Pablo Creek
Rheem Creek
BAXTER
SOURCE: National Hydrography Dataset, USGS, 2018; National Wetlands Inventory, USFWS, Data accessed 2021; Contra Costa County Watersheds, Contra Costa Clean Water Program at
(https://www.cccleanwater.org/community/watersheds),
2009; CA Bulletin 118 Groundwater Basins, Department of Water Resources, 2020; City of San Pablo, 2024; Contra Costa County GIS, 2024; Dyett & Bhatia, 2024
0 0.2 0.40.1
Miles
J:\GISData\581_SanPablo_GP\GIS\Projects\GeneralPlan\General Plan Map Updates\Figure 7-2 Water Resources.mxd Figure 7-2:
City Limits
Sphere of Influence
Major Roads
Minor Roads
Railroads
Creeks
Wetlands
Watersheds
Wildcat Creek
San Pablo Creek
Rheem Creek
Baxter / Cerrito Richmond Drainages
Groundwater Basin Boundary
Santa Clara Valley - East Bay Plain Subbasin
Water Resources
Chapter 7: Open Space & Conservation
7-13
release of fuels and solvents from East Bay factories. In part because of these factors, no groundwater wells exist in San Pablo. The City does not need to rely on groundwater since it receives all its water from the East Bay Municipal Utility District; which derives its water from the Sierra ranges.
Drinking water supply is described in more detail in Chapter 6:
Parks, Schools, Community Facilities, and Utilities.
Wildcat Creek is one of the three principal creeks running through San Pablo. Creek water is not potable due to the presence of dissolved pollutants and suspended materials.
San Pablo General Plan 2035
7-14
SURFACE WATER
The City of San Pablo lies within the West County Major Watershed region – a geographic entity in West Contra Costa County that includes the peer cities of El Cerrito, Richmond, Pinole, and Hercules. The West County Major Watershed
region is bounded by Eas t Bay Hills to the east, the San Pablo Bay to the west, and Alameda County to the south.
Watercourses in the region generally run from a south -east to north-west direction and empty into the San Francisco and San Pablo bays. Among these are Rheem Creek, Sa n Pablo Creek, and Wildcat Creek. The watersheds for each creek are shown in Figure 7-2.
Rheem Creek is a small, intermittent stream with a watershed under two square miles confined to the northern portion of San Pablo. It is channelized in approximately half its length in San Pablo.
San Pablo Creek is a year -round watercourse and Wildcat Creek is an intermittent stream. Both creeks have their headwaters in the hills east of San Pablo. Of the two, San Pablo is the larger watercourse, draining an area approximately 10 square miles. It is regulated in the upper watershed by two dams: Briones Dam and Reservoir, and San Pablo Dam and
Reservoir. Wildcat Creek is largely unregulated and has a drainage area of approximately 11 square miles.
SURFACE WATER QUALITY
Surface water quality is low in San Pablo’s creeks owing to their location in the midst of an urban environment. The California State Water Board has listed San Pablo and Wildcat Creek on the Section 303(d) of the Federal Clean Water Act list for Diazi non, a chemical compound commonly used in
insecticides. The Contra Costa Clean Water Program monitor s the creeks in Contra Costa County through its annual Urban Creeks Monitoring and 5 -Year Bioassessment reports as
required by the National Pollutant Discharge Elimination System (NPDES) permit. The 2022 Urban Creeks Monitoring Report found a California Stream Condition Index (CSCI) Score of ‘Very Likely Altered’ for San Pablo and Wildcat Creek.
The CSCI score indicates whether, and to what degree, the ecology of a stream is altered from a healthy state. A score of ‘Very Likely Altered’ indicates that the creek's chemistry and physical environment are heavily impacted , indicating low water quality.
Chapter 7: Open Space & Conservation
7-15
A major culprit of low water quality is stormwater run-off from commercial and residential areas which transports pollutants— such as pet waste, fertilizers, oil and trash—into the creeks.12 Although most of these pollutants are washed out into the San Pablo
Bay, some materials may be trapped in the creek
e
nvironment if they are caught in vegetation and debris jams.
The condition of these creeks highlights the importance of controlling illegal dumping, reducing urban runoff, and promoting the use of runoff filtration systems.
GROUNDWATER RECHARGE AND STORMWATER
MANAGEMENT
Being small in size, located inland, and heavily urbanized, the City of San Pablo does not possess large swaths of wetlands or marshes that can act as retention areas for storm or flood waters and natural groundwater recharge or filtration.
A further challenge is that the city’s creeks and associated riparian systems (especially San Pablo Creek and Wildcat Creek) may accommodate water for groundwater recharge and stormwater management to a limited degree due to their constrained and at times discontinuous nature (portions of the creeks are carried on concrete channels or are hidden underground). The areas along the creeks most able to accommodate groundwater recharge and stormwater management are the natural riparian areas next to St Joseph Cemetery and Davis Park.
The following policies are designed to protect and enhance surface and groundwater quality in San Pablo.
GUIDING POLICIES
OSC-G-5 Ensure both access and ecological functionality of the creek system in San Pablo.
OSC-G-6 Protect water supply and quality through
conservation and good stormwater management
practices.
12NPS San Pablo Creek and Wildcat Creek Water Quality Conditions (CCA Volume #97 and #101), State of the Critical Coastal Areas Reports, California Coastal Commission, 2006.
San Pablo General Plan 2035
7-16
IMPLEMENTING POLICIES
OSC-I-11 Maintain, protect, and enhance San Pablo’s
creeks, including Rheem, San Pablo, and
Wildcat creeks, as local environmental and
aesthetic resources, with approaches including,
but not limited to:
• Establishing a Creek Improvement Program to
widen, day -light (where possible) , and
improve San Pablo and Wildcat creeks for the
enjoyment of residents;
• Strengthening stormwater management
requirements for properties adjacent to the
creek areas by applying techniques that
maintain or restore nature character;
• Enforcing restrictions on the planting of
invasive species near creek areas;
• Identifying and working with property owners
to take advantage of unique opportunities
where human active use (e.g., through trail
development) would enhance creek
appreciation without disrupting ecological
function;
• Working with developers to “daylight” portions
of creeks that have historically been
channelized underground under existing paved
areas (e.g. parking lots); and
• Requiring minimum setbacks of at least 25
feet from the top of the creek bank for
development proposed adjacent to creeks, in
keeping with City development regulations
and Best Management Practices.
OSC-I-12 Develop a mechanism whereby property
owners with properties adjacent to creeks to
participate in the cost of creek improvement
maintenance. Any property owner maintenance
efforts should require City approval to ensure
integrity of the waterway and minimize any
upstream or downstream impacts.
OSC-I-13 Continue to work with the Regional Water
Quality Control Board (RWQCB) to protect and
improve ground - and surface-water quality in
the region.
Chapter 7: Open Space & Conservation
7-17
Additional policies to control stormwater and reduce urban runoff are in the ‘Wastewater and Stormwater’ section of the Parks, Schools, Community Facilities, and Utilities Element.
7.4 Land Resources
Land resource policies relate to the conservation of soils and other resources that are in the earth, and the prevention and control of soil erosion.
SOILS
Nine soil types have been mapped by the U.S. Department of Agriculture in the San Pablo Planning Area. They are
summarized in Table 7.4-1 and their characteristics are shown in Figure 7-3. Due to the range of soil types located in the Planning Area—with soil properties resulting in flooding, shrink - swells (expansive soils, described below), and excess wetness — various building site development restrictions exist in the Planning Area and affect land development costs. On average, Conejo clay loam has the most favorable properties for development, while cut and fill land has the least favorable properties. Conejo clay loam is naturally occurring and native to the area, while cut and fill land is the result of mechanical manipulation of upland areas for urban use.
Soils with only slight or moderate development restrictions comprise 728 acres or 30 percent of the Planning Area. These soils are concentrated in the middle portion of the Planning Area near the vicinity of Brookside Drive and Road 20. Much of the upland areas contain soils with more severe building site development restrictions.
None of the soils in the Planning Area comprise a significant direct health or safety hazard to residents.
EL
PORTAL DR
I 80
GIANT RD
23RD ST
EL PORTAL DR
HILLTOP DR
SAN PABLO DAM RD
MARKET AVE
BROOKSIDE DR
SAN PABLO AVE
ROAD 20
RUMRILL BLVD
BROADWAY AVE
CHURCH LN
ROBERT H MILLER DR
MARKET ST
13TH ST
RICHMOND PKWY
CHURCH LN
RICHMOND PKWY
ROAD 20
SAN PABLO AVE
SAN PABLO AVE
HILLTOP DR
SAN PABLO AVE
21ST ST
DOVER AVE
VALE RD
20TH ST
STANTON AVE
PINE AVE
MINER AVE
19TH ST
AMADOR ST
EMERIC AVE
SUTTER AVE
12TH ST
RIVERS ST
HILLCREST RD
ROLLINGWOOD DR
SANFORD AVE
17TH ST
15TH ST
LAKE ST
RIDGE RD
22ND ST
14TH ST
18TH ST
BUSH AVE
11TH ST
CALIFORNIA AVE
WILLOW RD
JOHN AVE
BROOK WAY
TYLER ST
VAN NESS ST
PALMER AVE
ESPANOLA DR
DEVON WAY
ARUNDEL WAY
MANOR DR
POWELL ST
CHEVY WAY
MARIN AVE
ROAD 20
MASON ST
WILCOX AVE
13TH ST
STONE ST
GREENWOOD DR
KELLEY AVE
AVON LN
FOLSOM AVE
FORDHAM ST
CASTRO RD
MISSION AVE
PULLMAN ST
MORROW DR
ALPINE RD
MANCHESTER AVE
MAC ARTHUR AVE
DEL CAMINO DR
DOUGLAS ST
KIRK LN
BOWHILL LN
TRENTON BLVD
YUBA AVE
BRENTZ LN
16TH ST
LOVEGROVE ST
GLENLOCK ST
MORAGA ST
ACAPULCO DR
MERRITT AVE
PABLO VISTA AVE
MONTOYA AVE
MIFLIN AVE
COLIN ST
BANCROFT LN
VENTURA AVE
GLENN AVE
JOEL CT
OHARE AVE
BANK LN
GERALD AVE
RIDGE LN
ALFREDA BLVD
WYMAN ST
CASINO AVE
CONTRA COSTA AVE
MANZANILLA DR
POST AVE
RUMRILL DR
CARLFIELD ST
REGINA AVE
STANDARD AVE
MARELIA CT
RIVERSIDE AVE
VALENCIA WAY
MISSION BELL DR
CLARE ST
HUMBOLDT AVE
E VICTORIA CT
UNIVERSITY AVE
CONNECTICUT AVE
STONINGTON AVE
N ARLINGTON BLVD
BARBARA LN
FILLMORE ST
SHASTA AVE
COALPORT ST
MADRONE WAY
27TH ST
FRIEDA CT
CHESLEY AVE
23RD ST
RANDY LN
ALVARADO SQ
ALAN CT
BAKER ST
DODSON ST
MONTE BUENA DR
BROOKSIDE AVE
W VICTORIA CT
JUDITH CT
SHEFFIELD CT
BROOKHAVEN CT
MURRA CT
26TH ST
MUIR ST
RHEEM AVE
20TH ST
18TH ST
18TH ST
21ST ST
11TH ST
13TH ST
17TH ST
18TH ST
MISSION BELL DR
17TH ST
16TH ST
19TH ST
GLENN AVE
LAKE ST
BUSH AVE
15TH ST
16TH ST
18TH ST
19TH ST
MISSION BELL DR
15TH ST
22ND ST
21ST ST
POST AVE
19TH ST
19TH ST
MASON ST
14TH ST
14TH ST
YUBA AVE
15TH ST
22ND ST
MERRITT AVE
20TH ST
19TH ST
17TH ST
0 0.50.25
Miles
SOURCE: ABAG, 2009; NRCS, 2008; USGS 2005;
Contra Costa County, 2010; City of San Pablo, 2010;
Dyett & Bhatia, 2010.
Very Low
Low
Moderate
High
Very High
Water
Liquefaction Susceptibility
and Shrink-Swell
UNION PACIFIC RR
BURLINGTON NORTHERN SANTA FE RR
Planning Area
City Limits
Major Roads
Minor Roads
Railroads
Severe Shrink-Swell Potential
Liquefaction Susceptibility
Hayward Fault
Alquist-Priolo Zone
Figure 7-3
Chapter 7: Open Space & Conservation
7-19
Table 7.4-1 Soils within the Planning Area
Map Symbol/ Soil Name
Building Site
Development
Restriction1 Erosion Runoff
Percent of
Planning
Area2
BaA/ Botella clay loam, 0 to 2 percent slopes Moderate None to slight
Very slow to
slow
0.5%
Cc/ Clear Lake clay Severe None Very slow 41.2%
CeA/ Conejo clay loam, 0 to 2 percent slopes Moderate None Slow 19.0% CkB/ Cropley clay, 2 to 5 percent slopes Severe Slight Slow 2.8% CnE/ Cut and fill land-los osos complex, 9 to
30 percent slopes
Severe High Rapid 9.4%
CoE/ Cut and fill land-millsholm complex, 9 to
30 percent slopes
Severe High Rapid 0.1%
GcF/ Gilroy clay loam, 30 to 50 percent
slopes
Severe Moderate
to high
Medium to rapid 0.2%
LhF/ Los osos clay loam, 30 to 50 percent
slopes
Severe Moderate
to high
Medium to rapid 5.6%
TaC/ Tierra loam, 2 to 9 percent slope Moderate Moderate Medium to rapid 21.2% W/ Water NA 0.1%
TOTAL 100.0%
1 Indicates development restrictions due to shrink-swell potential. Soils with shrink-swell rating of 0.5 are given a moderate rating while those with 1.00 are given a severe rating as it indicates the greatest negative impact on use. 2 Totals may not add up due to rounding.
Source: US Department of Agriculture, Natural Resources Conservation Service, 2008.
EROSION
Soil erosion is a process whereby soil materials are worn away and transported to another area, either by wind or water. Soil erosion is important to the community because the erosion of topsoil can cause landslides. The rate of soil erosion can vary depending on the soil material and structure, placement, and human activity. Soils containing high amounts of silt can be easily eroded, while sandy soils are less susceptible. In terms of building site restrictions, excessive soil erosion can damage building foundations and roadways. In the case of open space uses, erosion potential is reduced with vegetative coverage.
Table 7.4 -1 provides an overview of the different soil types’ susceptibility to erosion in San Pablo. Generally, soils with faster infiltration rates are less likely to be carried away by rain or runoff. Soils high in clay, such as Clear Lake clay, have slow runoff rates because they are resistant to detachment. Mixed textured soils, such as the cut and fill soils, are moderately susceptible to detachment and they produce moderate runoff. 7-20
San Pablo General Plan 2035
Slope gradient is another factor 13 Naturally, the steeper the slope of a field, the greater the amount of soil-loss from erosion by water. In this respect, the upland areas of San Pablo near San Pablo Dam Road and Stanton Avenue are more prone to erosion than those areas on flat ground.
MINERAL RESOURCES
The California Surface Mining and Reclamation Act of 1975 requires that all cities incorporate into their general plans mapped mineral resources designations approved by the State Mining and Geology Board. While some mineral resources can be found in Contra Costa County including aggregate and stone for commercial, industrial, and construction uses, none of these are found within the Planning Area. According to State Office of Mine Reclamation, as of April 2010, there were no regulated mine facilities and no known mineral resources in San Pablo.
Policies that relate to the protection of land resources are in Section
9.1 Geologic and Seismic Hazards, in the Safety and Noise Element.
7.5 Cultural Resources
In terms of long -range conservation planning, cultural resources are typically historic, archaeological, or Native American sites and structures protected under local, State, or federal law. These resources are protected because of their contribution to understanding and appreciating the past.
Historic resources are defined as structures of historic or aesthetic significance. Architectural sites dating from the Spanish Period (1529 -1822) through the post -World War II period (1945 - 1955) are generally considered for protection if they are determined to be historically or architecturally significant. Site s dating after the post -World War II period may also be considered for protection if they could gain significance in the future. Historic resources are often associated with archaeological deposits of the same age. 13 Soil Survey of California, Contra Costa County, 1977.
Chapter 7: Open Space & Conservation
7-21
Archaeological resources are places where human activity has measurably altered the earth or left deposits of physical remains. Archaeological resources may be either prehistoric (before the introduction of writing in a particular area) or historic (after the introduction of writing). The majority of such places in this region are associated with either Native American or Euro-American occupation of the area.
Contemporary Native American resources, also called
ethnographic resources, can include archaeological burial sites, rock art, and the prominent topographical areas, features, habitats, plants, animals, and minerals that contemporary Native Americans value and consider essential for the
preservation of their traditional values.
The Teixeira House (established 1890) is a building of historical significance in San Pablo.
HISTORICAL RESOURCES IN SAN PABLO
According to an inventory search conducted by the Northwest Information Center at Sonoma State University, the Planning Area contains important historical resources, including 49 historic buildings and structures listed by the Office of Historic Preservation’s Historic Property Directory. San Pablo’s historic resources are illustrated in Figure 7 -4 and listed in more detail in Table 7.5-1. Review of historical literature and maps indicate the city has seen a long development history dating back through the Mexican period, and into the American period. Numerous
buildings survive from these time periods and provide a visual history to the historic-era development of San Pablo.
San Pablo General Plan 2035
7-22
Table 7.5-1 Buildings of Historic Significance
No. Address Year Built Historical Name
1 3200 11th Street 1949 -
2 3409 11th Street 1954 -
3 1816 14th Street 1924 -
4 1614 15th Street 1935 -
5 1875 15th Street 1952 -
6 2759 15th Street 1951 -
7 1740 16th Street 1934 -
8 1881 16th Street 1953 -
9 1958 16th Street 1946 -
10 2721 18th Street unknown -
11 2972 19th Street 1953 -
12 2024 20th Street 1948 -
13 2996 20th Street 1954 -
14 2331 22nd Street 1929 -
15 Alvarado Square 1905 Blume House
16 Alvarado Square 1890 Teixeira Home
17 2900 Arundel Way 1943 -
18 2445 Bancroft Lane 1943 -
19 1300 Brookside Avenue 1949 -
20 1811 Bush Avenue 1940 -
21 1825 Church Lane 1863 St Paul’s Catholic Church & Graveyard 22 1901 Church Lane 1875 Old Rectory
23 1501 Colin Street unknown -
24 930 CR 20 1884 Rumrill Helms House
25 2009 CR 20 1951 -
26 2022 CR 20 unknown Stanley Alter Home
27 1401 Dover Avenue 1948 -
28 2418 Dover Avenue 1943 -
29 1514 Emeric Avenue 1941 -
30 1807 Emeric Avenue 1935 -
31 2201 Emeric Avenue 1930 -
32 1108 John Avenue 1942 -
33 1601 Manor Drive 1943 -
34 2650 Market Avenue 1906 1906 Earthquake Camp Site
35 1830 Mason Street 1951 -
36 5739 McBryde Avenue 1911 -
37 2634 O’Hare Avenue 1943 -
38 1919 Pine Avenue 1951 -
39 1841 Pullman Street 1875 Pullman Street Rectory
40 918 Randy Lane 1900 Andrade House
41 2009 Road 20 1950 -
Chapter 7: Open Space & Conservation
7-23
Table 7.5-1 Buildings of Historic Significance
No. Address Year Built Historical Name
42 2778 Rollingwood Drive 1943 -
43 2797 Rollingwood Drive 1943 -
44 2807 Rollingwood Drive 1943 -
45 13831 San Pablo Avenue 1978 Alvarado Adobe Replica of 1826 house 46 14006 San Pablo Avenue 1875 Mello Residence
47 1230 Sanford Avenue 1950 -
48 1914 Sanford Avenue 1940 -
49 1748 Sutter Avenue 1944 -
Source: Office of Historic Preservation, Northwest Information Center, Sonoma State University, 2008.
ARCHAEOLOGICAL RESOURCES IN SAN PABLO
San Pablo is located within the historic territory of the Huchiun, speakers of the Costanoan/Ohlone language. The Huchiun (the word Huchiun simply means 'people') lived high in the western hills of West Contra Costa County. Native American cultural resources in this part of the region have been found near sources of water including perennial and intermittent streams and springs, on mid -slope terraces, and elevated knolls above the flood plain, and near ecotones and other productive
environments. In fact, the Planning Area contains at least seven recorded Native American cultural resources. All of these resources represent habitation sites, three of the seven have recorded burials, and one site is a contributor to a district determined eligible for the National Register by consensus. The environmental features, coupled with the number of record habitation sites, suggest it is likely that unrecorded Native American cultural sites exist in the Planning Area.
Unlike historic sites, the location of archaeological sites is restricted by the federal Archaeological Resources Protection Act (ARPA) in order to prevent looting, vandalism, and
destruction of archaeological resources. As a result, they are not indicated on Figure 7-4.
The following policies are designed to appreciate, protect, and preserve known and unknown cultural resources in San Pablo. !(
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§¨¦80
City of
Richmond
Bayview
Elementary
School
Lake
Elementary
School
Helms
Middle School
Dover
Elementary
School
Salesian College
Preparatory
High School
Riverside
Elementary
School
Downer
Elementary
School
City of
Richmond
21ST ST
11TH ST
SAN PABLO AVE
17TH ST
VALE RD
DOVER AVE
20TH ST
STANTON AVE
PINE AVE
MINER AVE
19TH ST
16TH ST
15TH ST
AMADOR ST
RIVERS ST
SUTTER AVE
EMERIC AVE
12TH ST
14TH ST
HILLCREST RD
ROLLINGWOOD DR
13TH ST
SANFORD AVE
LAKE ST
RIDGE RD
CALIFORNIA AVE
22ND ST
18TH ST
BUSH AVE
JOHN AVE
WILLOW RD
ALPINE RD
BROOK WAY
PALMER AVE
TYLER ST
ESPANOLA CT
VAN NESS ST
POWELL ST
ARUNDEL WAY
DEVON WAY
MARIN AVE
MASON ST
WILCOX AVE
STANDARD ST
POST AVE
CHEVY WAY
ALFREDA BLVD
STONE ST
BAYO VISTA AVE
KELLEY AVE
FORDHAM ST
GREENWOOD DR
MANOR DR
YUBA AVE
MANCHESTER AVE
PULLMAN ST
FOLSOM AVE
MISSION AVE
AVON LN
VILLA DR
MISSION BELL DR
MACARTHUR AVE
MORROW DR
BEAU RIVAGE
BOWHILL LN
DOUGLAS ST
MIFLIN AVE
TRENTON BLVD
BONITA RD
MERRITT AVE
GLENLOCK ST
DEL CAMINO DR
FILLMORE ST
PABLO VISTA AVE
LOVEGROVE AVE
GLENN AVE
COLIN ST
ACAPULCO DR
MARELIA CT
BANCROFT LN
MONTOYA AVE
VENTURA AVE
ABELLA CIR
CLARE ST
JOEL CT
GERALD AVE
EVENS AVE
MANZANILLA DR
CARLFIELD ST
CORTE ST
OHARE AVE
CONTRA COSTA AVE
CASINO AVE
RUMRILL RD
WYMAN ST
RIVERSIDE AVE
REGINA AVE
BARRANCA ST
HUMBOLDT ST
E VICTORIA CT
SHASTA AVE
HARBORVIEW AVE
CLEMENT AVE
CONNECTICUT AVE
CHATTLETON LN
UNIVERSITY AVE
BARBARA LN
KIRK LN
JEAN CT
MADRONE WAY
WESTGATE CIR
W VICTORIA CT
FRIEDA CT
BROOKSIDE AVE
MONTE BUENA ST
DODSON ST
JUDITH CT
WANLASS AVE
DRAKE WAY
LARCHMONT LN
18TH ST
19TH ST
20TH ST
19TH ST
BUSH AVE
15TH ST
15TH ST
21ST ST
18TH ST
SHASTA AVE
GLENN AVE
17TH ST
MERRITT AVE
RIVERSIDE AVE
14TH ST
18TH ST
DOVER AVE
19TH ST
22ND ST
MASON ST
15TH ST
16TH ST
17TH ST
POST AVE
LAKE ST
20TH ST
21ST ST
RIVERS ST
YUBA AVE
19TH ST
22ND ST
16TH ST
17TH ST
MINER AVE
ROSE ARBOR A VE
Bayview A ve
BOLDUC CT
CAPITO
LH
ILL AVE
W ESTVIEW
PL
N
ARLINGTONBLVD
H
ILLCREST
RD
MI
FFIN
AVE
EL PORTAL DR SAN PABLO DAM RD
ROAD 20ROAD 20
BROOKSIDE DR
MARKET AVE
MARKET ST CHURCH LN
CHURCH LN
23RD ST
VALENCIA WAY
BROADWAY
ROAD 20 RUMRILL BLVD
CHESLEY AVE
RICHMOND PKWY
RICHMOND PKWY
City
Hall
Contra Costa
College
John
Herbert
Davis Park
San Pablo
Lytton
Casino
St. Joseph
Cemetery &
Funeral Center
Wanlass
Park
Rheem Creek
San Pablo Creek
Wildcat Creek
San Pablo Creek
Wildcat Cr eek
San Pablo Creek
BURLINGTON NORTHERN SANTA FE RR
UNION PACIFIC RR
34 12
St Paul
School
18 42
43 44
17 36
46 15
16 45
28 35 39
22 21
34 33
19 24
40 9
27 5 8
3 7
4 49
20 38
3130
29 47
48 14
26 41
25 6
37 23
10 11
13 2
32 1
SOURCE: California Historic Landmarks, Office of Historic Preservation, California State Parks, 2024; City of San Pablo, 2024;
Contra Costa County GIS, 2024; Dyett & Bhatia, 2024
0 0.2 0.40.1
Miles
J:\GISData\581_SanPablo_GP\GIS\Projects\GeneralPlan\General Plan Map Updates\Figure 7-4 Historical and Cultural Resources.mxd Figure 7-4:
City Limits
Sphere of Influence
Major Roads
Minor Roads
Railroads
Historical and
Cultural Resources
!( California Historical Landmark
!( Buildings of Historic Significance
#
#
Chapter 7: Open Space & Conservation
7-25
GUIDING POLICIES
OSC-G-7 Identify and preserve the cultural resources that are found within the City of San Pablo.
IMPLEMENTING POLICIES
OSC-I-14 Establish and maintain a register of historic and potentially historic resources in San Pablo.
A historic preservation register is the primary
planning tool used to identify, record, and evaluate
historic properties within a community,
neighborhood, project area, or region. The City may
use the list of historical buildings in the General
Plan as a starting point to create a register of
sites/buildings San Pablo may wish to designate as
landmarks and/or important historical resources.
The register can form an important component of
the local preservation program, and can ultimately
contribute to community knowledge of local history.
OSC-I-15 Preserve and build upon the historic and
multicultural identity of the Alvarado District as
a defining element of the city.
OSC-I-16 Help to ensure that new development analyzes and avoids potential impacts to historic,
archaeological, and paleontological resources
by:
• Requiring a records review for development
proposed in areas that are considered
archaeologically or paleontologically sensitive;
• Requiring pre-construction surveys and
monitoring during any ground disturbance for
all development in areas of historic or
archaeological sensitivity;
• Implementing appropriate measures as a
condition of project approval —measures such
as avoidance, preservation in place, excavation,
documentation, and/or data recovery —in order
to avoid any identified cultural resource
impacts.
In the event that historical, archaeological, or
paleontological resources are discovered during
construction, grading activity in the immediate area
San Pablo General Plan 2035
7-26
shall cease and materials and their surroundings
shall not be altered or collected. A qualified
archaeologist or paleontologist must make an
immediate evaluation and avoidance measures or
appropriate mitigation should be completed,
according to CEQA Guidelines. The State Office of
Historic Preservation has issued recommendations
for the preparation of Archaeological Resource
Management Reports that may be used as
guidelines.
OSC-I-17 Work with local Native American Tribes to
protect recorded and unrecorded cultural and
sacred sites, and to educate developers and the
community-at- large about the connections
between Native American history and the
environmental features that characterize the
local landscape.
Native American resources in the Planning
Area have been found near sources of water
including perennial and intermittent streams
and springs, on mid -slope terraces and
elevated knolls above the floodplain, and near
ecotones and other productive environments.
There is a high likelihood that additional
unrecorded Native American cultural sites also
exist in the Planning Area.
7.6 Air Quality and Climate Change
The City of San Pablo cares about protecting and improving air quality for two major reasons: 1) certain kinds of air pollutants are directly harmful to human health and the health of the natural environment (water quality, plant and animal life), and 2) other kinds of air pollutants are believed to contribute to broad and long -term environmental changes that may pose health and safety risks to humans and ecosystems in the future.
This section provides a brief description of Bay Area air pollutants and their health effects, air quality in San Pablo and sources of air pollution, San Pablo’s contributions to
greenhouse gases (GHGs), and the potential effects of global climate change on the local community and wider region.
Policies in this section aim to reduce air pollution, reduce exposure to air pollutants, reduce greenhouse gas emissions, and increase communitywide resilience to the anticipated long - term effects of climate change on San Pablo and the Bay Area.
Chapter 7: Open Space & Conservation
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Policies in other parts of the General Plan, including the Land Use and Physical Design Element, Circulation Element, Parks, Schools, Community Facilities, and Utilities Element, and Community Health & Environmental Justice Element, also
contain policies designed to reduce air pollution, emissions of greenhouse gases, and community vulnerability to climate change impacts.
AIR POLLUTANTS AND HEALTH EFFECTS
When it comes to direct human health effects, there are two main categories of air pollutants regulated in California: criteria pollutants and toxic air contaminants.
Criteria Pollutants
Criteria air pollutants are pervasive in the urban environment and the U.S. Environmental Protection Agency (EPA) has regulated them by developing specific public health - and welfare- based criteria as the basis for setting permissible levels.
The six criteria pollutants are ozone (O3), carbon monoxide (CO), nitrogen dioxide (NO2), sulfur dioxide (SO2), particulate matter (PM), and lead (Pb). Regulation of criteria pollutants is achieved through both national and State ambient air quality standards and emis sions limits for individual sources of air pollutants. The EPA has established National Ambient Air Quality Standards (national standards), and California has adopted more stringent standards for most of the criteria air pollutants (State standards).
The EPA classifies air basins or portions thereof, as either “attainment” or “nonattainment” for each criteria air pollutant based on whether or not the national standards have been achieved. Air basins also receive designation as “attainment” or “nonattainment” for State standards. Thus, California has two sets of attainment/nonattainment designations: one with respect to national standards and one with respect to State standards. The following Table 7.6-1 summarizes the Bay Area attainment status.
San Pablo General Plan 2035
7-28
Table 7.6-1 State and National Criteria Air Pollutant Standards, Bay Area Attainment Status, Sources, and Effects
Pollutant
Averaging
Time
California
Standard
Bay Area
Attainment
Status
National
Standard
Bay Area
Attainment
Status
Major Pollutant Sources
Pollutant Health and
Atmospheric Effects
Ozone
1 hour
0.09 ppm
N
N
---
0.07 ppm
N
On-road motor vehicles,
other mobile sources,
solvent extraction,
combustion, industrial and
commercial processes.
High concentrations can
directly affect lungs, causing
irritation. Long-term
exposure may cause
damage to lung tissue. 8 hour 0.07 ppm
Carbon Monoxide
1 hour 20 ppm A
A
35 ppm
9.0 ppm
A
A
Internal combustion
engines, primarily gasoline-
powered motor vehicles.
Classified as a chemical
asphyxiant, carbon
monoxide interferes with
the transfer of fresh
oxygen to the blood and
deprives sensitive tissues of
oxygen.
8 hour
9.0 ppm
Nitrogen
Dioxide 1 hour 0.18 ppm A ---
0.053 ppm
U
A
Motor vehicles, petroleum
refining operations,
industrial sources, aircraft,
ships, and railroads.
Irritating to eyes and
respiratory tract. Colors
atmosphere reddish
brown.
Annual
Average 0.03 ppm
Sulfur Dioxide 1 hour 0.25 ppm A
A
0.075
0.14 ppm
0.03 ppm
U
Fuel combustion, chemical
plants, sulfur recovery
plants, and metal
processing.
Irritates upper respiratory
tract, injurious to lung
tissue. Can yellow the
leaves of plants, destructive
to marble, iron and steel.
Limits visibility and reduces
sunlight.
24 hour 0.04 ppm
Annual
Average
---
Particulate Matter
(PM-10)
24 hour
50 mg/m3
N
N
150
mg/m3
---
U
Dust- and fume-producing
industrial and agricultural
operations, combustion,
atmospheric photochemical
reactions, and natural
activities (e.g. wind-raised
dust and ocean sprays).
May irritate eyes and
respiratory tract,
decreases lung capacity and
increases risk of cancer
and mortality. Produces
haze and limits visibility.
Annual
Average
20 mg/m3
Particulate Matter
(PM-2.5)
24 hour
---
N
35 mg/m3
12 mg/m3
N
U/A
Fuel combustion in motor
vehicles, equipment and
industrial sources;
residential and agricultural
burning. Also formed from
photochemical reactions of
other pollutants, including
NOx, sulfur oxides, and
organics.
Increases respiratory
disease, lung damage,
cancer and premature
death. Reduces visibility
and results in surface
soiling. Annual
Average
12 mg/m3
Lead
Monthly
Average 1.5
mg/m3
A
---
1.5 mg/m3
A
Present source: lead
smelters, battery
manufacturing and recycling
facilities. Past source:
combustion of leaded
gasoline.
Disturbs gastrointestinal
system, and causes anemia,
kidney disease, and
neuromuscular and
neurologic dysfunction. Calendar
Quarter ---
Notes: A=Attainment; N=Nonattainment; U=Unclassified; ppm=parts per million; and mg/m3=micrograms per cubic meter Source : http://hank.baaqmd.gov/pln/air_quality/ambient_air_quality.htm. Accessed May 21, 2010, updated 2017 and accessed in 2025.
Chapter 7: Open Space & Conservation
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Toxic Air Contaminants
Toxic air contaminants (TACs) are air pollutants that may cause or contribute to an increase in mortality or in serious illness, or that may pose a present or potential hazard to human health, but for which no ambient air quality standards have been established. TACs are less pervasive in the urban atmosphere than criteria air pollutants, but are linked to short -term (acute) or long -term (chronic and/or carcinogenic) adverse human health effects. There are many different types of TACs, with varying degrees of toxicity. Sources of TACs include industrial processes, commercial operations (e.g., gasoline stations and dry cleaners), and motor vehicle exhaust. The current list of TACs includes approximately 200 compounds. Regulation of TACs is achieved through federal or State control over
individual sources. Two particular TACs of importance to San Pablo’s planning include:
• Diesel particulate matter (DPM). Diesel PM has been
identified by the California Air Resources Board (CARB) as a TAC and represents about 70 percent of the known
potential cancer risk from air toxics in California. Diesel PM is an important contributor to particulate matter air
pollution. Particulate matter exposure is associated with premature mortality and health effects such as asthma
exacerbation and hospitalization due to aggravated heart and lung disease.
• Asbestos. In 1986, CARB identified asbestos as a TAC based on its classification as a known cancer -causing pollutant. In that process, CARB found that no threshold exposure level could be identified below which adverse health effects
would not be expected. Asbestos occurs naturally in certain kinds of rock (not known to occur in San Pablo ), and may also be found in older structures as a building material.
AIR QUALITY IN SAN PABLO
The Bay Area Air Quality Management District (BAAQMD)
regulates emissions in the Bay Area and monitors air quality conditions through out the region. San Pablo has one
monitoring station (located at 1865 Rumrill Boulevard) that measures criteria pollutants, including ozone, carbon
monoxide, nitrogen dioxide, and sulfur dioxide.
According to the latest available annual air pollution summary at the San Pablo station (2019), there was one instance exceeding the one -hour Ozone standard, two instances of exceeding the 8 -hour National and State standard for Ozone, and one instance of e xceeding the 24 -hour PM2.5 standard in San Pablo General Plan 2035
7-30
that year.
The maximum 8 -hour Ozone level was 79 parts per billion (ppb), one of the highest of the Bay Area stations. The highest daily 8-hour carbon monoxide one -hour maximum measured at the Rumrill Boulevard station in 2019 was 1.8 parts per million (ppm. The highest one-hour level of Sulfur dioxide was
17.6 ppb. The maximum 24 -hour PM10 was 16.5 ug/m3 and the maximum 24 -hour PM 2.5 was 35.9 ug/m3, the latter
measurement being the highest of all the Bay Area stations for 2019.
San Pablo is among those communities “of high concern”
identified by the BAAQMD’s Community Air Risk Evaluation (CARE) program, in particular, because of community
exposure to high diesel PM emissions, a significant TAC in the Bay Area.
AIR POLLUTION SOURCES
In San Pablo, as in many urban areas, motor vehicles —including automobiles, trucks, buses, trains, and others—are major contributors to air pollution.
Most mobile source air pollution within San Pablo comes from the I-80 corridor and the railroad. Smaller sources within San Pablo include facilities such as auto body shops, dry cleaners, and light industrial uses. Industrial sources of air pollution include a petroleum refinery, a chemical plant, a coal and petroleum, coke terminal, organic liquid storage and
distribution facilities, wastewater treatment plants, a landfill, organic waste metal facilities, and industrial and manufacturing plants of various sizes Contra Costa County is home to other refineries operated by Shell, Tesoro, Conoc oPhillips, and Valero. These refineries, as well as the Pittsburg Power Plant —the fourth largest power plant in California —are located downwind of San Pablo, but they have an impact on regional air quality as a whole. Likewise, air pollution from the I-580 corridor and Oakland-San Francisco metropolitan area to the south also contributes to regional air quality problems.
Path to Clean Air: Community Emissions Reduction Plan
In response to AB 617 (C. Garcia, Chapter 136, Statutes of 2017), the California Air Resources Board (CARB) established the Community Air Protection Program (CAPP or Program). The Program’s focus is to reduce exposure in communities most impacted by air pollution. As a result, communities around the State are working together to develop and implement new strategies to measure air pollution and reduce health impacts.
Chapter 7: Open Space & Conservation
7-31
San Pablo is part of the “Richmond - North Richmond - San Pablo” Community Emissions Reduction Plan (CERP) area,
which covers over 160,000 people in Richmond, North
Richmond, and San Pablo. A Community Steering Committee, which includes San Pablo staff and resident representation, has been working with the Bay Area Air Quality Management
District (BAAQMD) and the California Air Resources Board (CARB) since 2021 to develop strategy recommendations for reducing emissions and improving health with the release of the Path to Clean Air: Community Emissions Reduction Plan.
The San Pablo community suffers negative health impacts from a combination of high industrial, rail, marine, and truck pollution, and 75% of the City’s census tracts are considered to be in the top 10% for asthma statewide. The Richmond - North Richmond - San Pablo CERP includes strategies that can help reduce the highest impact, focusing particularly on the emissions that are strongly linked to chronic health problems.
The CERP provides an opportunity to reduce pollution
significantly and to improve regul ation and drive continuous reductions.
The CERP addresses key issues of community concern,
including setting goals for reducing fine particulate matter (PM
2.5), nitrogen oxides, nickel, manganese, benzene, sulfuric acid, diesel particulate matter (DPM), formaldehyde, acrolein, arsenic, hydrogen cyanide, and hydrochloric acid emissions, as these appear to be the greatest contributors to chronic health problems in the community. Another important goal is to improve public education and community understanding of pollution-related health problems, local emission sources, and emission reduction goals and achievements. The CERP will also implement pollution reduction strategies and more
comprehensive health and social services to help decrease pre - existing vulnerabilities and lower the community's bu rden of adverse health risks.
SENSITIVE RECEPTORS
Some people are more sensitive to air pollution than others.
Heightened sensitivity may be caused by pre -existing health problems, proximity to the emissions source, and duration of exposure to pollutants. Occupants and visitors to land uses such as schools, children's day care centers, hospitals, and convalescent homes are considered to be more sensitive than the general public to poor air quality because the population groups associated with these uses have increased susceptibility to respiratory distress and other air quality-related health problems. Persons engaged in strenuous work or exercise also have increased sensitivity to poor air quality. Efforts to San Pablo General Plan 2035
7-32
improve air quality and reduce community exposure to air pollutants should give priority to regulations and land use design decisions that protect sensitive receptors.
Some people, such as children with asthma, are more sensitive to the effects of air pollutants than others.
CLIMATE CHANGE AND GREENHOUSE GAS
EMISSIONS
Global Climate Change is a change in the average air temperature as measured by wind patterns, storms, precipitation, and temperature. In the past 10,000 years the Earth has experienced incremental warming as glaciers retreated across the globe.
However, scientists believe we have observed an unprecedented increase in the rate of warming over the past 150 years, roughly coinciding with the global industrial revolution. Evidence suggests this enhanced global warming is caused by humans, through emissions of greenhouse gases as a result of activities such as electricity generation, vehicle fuel consumption, and even farming and forestry practices. Scientists expect that the resulting increase in global mean temperature from 1990 -2100 could range from 2.0 to 11.5 degrees Fahrenheit, with the most likely scenario between 3.2 and 7.1 degrees.
Climate Change Impacts
Accelerating global climate change has the potential to cause a number of adverse impacts in California, such as: a shrinking Sierra snowpack that could threaten the state’s water supply; public health risks caused by higher temperatures and more Exhaust fumes from automobiles
and trucks emit carbon
monoxide, carbon dioxide,
nitrogen oxide, and hydrocarbons.
Chapter 7: Open Space & Conservation
7-33
smog; damage to agriculture and forests due to reduced water storage capacity, higher temperatures, increased salt water intrusion, flooding, and pest infestations; critical habitat modification and destruction; eroded coastlines; increased wildfire risk; and increased electricity demand.14
While all of these impacts may be felt to some extent in the Bay Area, of particular concern to San Pablo are water quality and water supply issues; increased temperature and extreme heat events; fire threat at the urban-wildland interface; an imbalance between electricity supply and demand; and indirectly, sea- level rise and increased storm surge with potential for intermittent flooding and gradual inundation of facilities nearby San Pablo. Climate resilience can be seen as a co-benefit of open spaces, and the City should explore ways to take advantage of climate resiliency through the use of open space.
Greenhouse Gas Emissions
San Pablo can combat climate change by reducing the
community’s contribution to Greenhouse Gases (GHGs) in the atmosphere. The six primary GHGs known to accelerate GCC are carbon dioxide (CO2), methane (CH4), nitrous oxide (N2O), hydrofluorocarbons (HFCs), perfluorocarbons (PFCs), and sulfur hexafluoride (SF6). Though there are other gases that can contribute to global warming, these six are identified explicitly in California legislation. The City completed a Greenhouse Gas Inventory in 2011.
Climate Action Plan
In 2012, the City adopted a Climate Action Plan, which
provides a policy framework to reduce the City’s greenhouse gas emissions, while also promoting city improvements to increase livability, health and safety of the community. The City has begun implementation of a number of Climate Action Plan measures and will be tracking and reporting on their effectiveness on a continual basis. The Climate Action Plan is a living document that will be updated as new science and information becomes available.
14 Office of the Attorney General, Global Warming Impacts in California.
San Pablo General Plan 2035
7-34
GUIDING POLICIES
OSC-G-8 Protect and improve the air quality in San Pablo.
OSC-G-9 Reduce emissions of greenhouse gases that
contribute to global climate change.
IMPLEMENTING POLICIES
OSC-I-18 Complete an update to the City’s Climate Action Plan (2012) and continue implementation in the
meantime.
OSC-I-19 Continue to work with the Bay Area Air Quality Management District on the implementation of
the Community Emissions Reduction Plan
prepared for the San Pablo -Richmond area in
2024 to address the exposure of sensitive
populations to toxic air contaminant emissions
in San Pablo.
The Bay Area Air Quality Management District's
Community Air Risk Evaluation (CARE) Program
identified the Richmond/San Pablo area west of I -
80 (which encompasses most of San Pablo) as one of
six "communities of high concern" in the Bay Area
due to high levels of diesel particulate matter
emissions which contribute to higher than average
cancer risk levels. The Richmond-San Pablo CERP
is an outgrowth of this effort.
Action steps in the CERP include the following:
• Explore the ways that open space can further
climate resilience
• Support State reparations efforts as they relate
to Black residents in the Community Emissions
Reduction Plan (CERP) Area and in Contra
Costa County
• In collaboration with community groups, like
Urban Tilth, hire and train community
members for jobs in the green workforce, around
tree planting and trail building. This would also
include community education to better
understand the importance of increasi ng
neighborhood green infrastructure
Chapter 7: Open Space & Conservation
7-35
• Incentivize plantings around commercial,
affordable, mixed -use, multi -family
development, light and heavy industry, logistics
enter and other land uses likely to cause air
pollution
• Provide enforcement to maintain landscaping of
new development
• Implement heavy -duty truck management
strategies (such as designating truck routes and
installing design deterrents to prevent trucks
from using residential streets
• Require more stringent review of industrial
businesses proposed to be located near
residential uses
• Update regulations to buffer residents from
sources of pollution such as freeways and
industrial uses (by requiring developers to
install air filtration systems and locate windows,
balconies, and plazas away from pollution
sources)
• Plant trees in priority neighborhoods (near
freeways and within the “fenceline” of
industrial facilities)
OSC-I-20 Maintain a 500 -foot Air Quality Health Risk Overlay Zone on either side of Interstate 80
within the Planning Area to protect sensitive
receptors from toxic air emissions. Within this
overlay, avoid approval of new sensitive land
uses, and for those projects permitted, require
site-specific project design improvements
(such as higher - performance windows and
HVAC systems) in order to reduce public
health risks associated with poor air quality in
these locations.
Sensitive receptors refers to those segments of the
population most susceptible to poor air quality,
such as children, the elderly, and those with pre -
existing serious health problems affected by air
quality. Land uses where sensitive receptors are
most likely to spend time include, but are not
limited to, hospitals and other medical facilities,
schools and school yards, senior centers, child care
centers, parks and playgrounds, and higher-
San Pablo General Plan 2035
7-36
OSC-I-21
OSC-I-22
OSC-I-23
OSC-I-24
OSC-I-25
density residential communities. In traffic-related
studies, additional non-cancer health risk
attributable to proximity was seen within 1,000
feet and was strongest within 300 feet. California
freeway studies show about a 70 percent drop-off
in particulate pollution levels at 500 feet.1
5 Require developers to use best management
practices (BMPs) to reduce particulate
emissions and dust associated with
construction activities as a condition for
approval of subdivision maps, site plans, and
gr
ading permits. These BMPs include, but are
not limited to, regular materials and vehicle tire
watering, covering, and dust prevention
measures during clearing, grading, earth-
moving, or excavation operations.
Continue to support the Bay Area Air Quality
Management District’s efforts to monitor and
control air pollutants from stationary sources.
Continue to work with surrounding
jurisdictions and agencies to establish parallel
air quality programs and implementation
measures, as necessary, to improve air quality
standards.
Support non-polluting transportation modes
and opportunities (i.e., pedestrian, bike,
carpooling opportunities and public transit
improvements) as specified in the Circulation
Elem
ent.
Promote energy efficiency in architectural
design for new construction including building
orientation to take advantage of wind and sun,
and site design features (such
as clustering of
uses), pre-wiring for optional photovoltaic or
solar heating systems, etc.
15 California Environmental Protection Agency, California Air Resources Board, "Air Quality and Land Use Handbook: A Community Health Perspective" , April 2005.
8 Richmond Pkwy
23rd St
Giant Rd
Rd 20
Rumrill Blvd
Market Ave
Broadway Ave
Rd 20
Brookside Dr
Church Ln
11th St
Stanton Ave
San Pablo Ave
Rumrill Blvd
Rumrill Blvd
Church Ln
San Pablo Ave
San Pablo Ave
San Pablo Dam Rd
SanPabloDamRd
El Portal Dr
Rd 20
San Pablo Dam Rd
El Portal Dr
§¨¦80
City of
Richmond
City of
Richmond
21st St
11th St
San Pablo Ave
17th St
Vale Rd
Dover Ave
20th St
Stanton Ave
Pine Ave
Miner Ave
19th St
16th St
15th St
Amador St
Rivers St
Sutter Ave
Emeric Ave
12th St
14th St
Hillcrest Rd
Rollingwood Dr
13th St
Sanford Ave
Lake St
Ridge Rd
California Ave
22nd St
18th St
Bush Ave
John Ave
Willow Rd
Alpine Rd
Brook Way
Palmer Ave
Tyler St
Espanola Ct
Van Ness St
Powell St
Arundel WayArundell Way
10th St
Devon Way
Marin Ave
Mason St
Wilcox Ave
Standard St
Post Ave
Chevy Way
Alfreda Blvd
Stone St
Bayo Vista Ave
Kelley Ave
Fordham St
Greenwood Dr
Manor Dr
Yuba Ave
Manchester Ave
Pullman St
Folsom Ave
Mission Ave
Avon Ln
Villa Dr
Mission Bell Dr
Macarthur Ave
Morrow Dr
Beau Rivage
Bowhill Ln
Douglas St
Miflin Ave
Trenton Blvd
Bonita Rd
Merritt Ave Glenlock St
Del Camino Dr
Fillmore St
Pablo Vista Ave
Lovegrove Ave
Glenn Ave
Colin St
Acapulco Dr
Marelia Ct
Bancroft Ln
Montoya Ave
Ventura Ave
Abella Cir
Clare St
Joel Ct
Gerald Ave
Evens Ave
Manzanilla Dr
Carlfield St
Corte St
Ohare Ave
Contra Costa Ave
Casino Ave
Rumrill Rd
Crucero Ave
Wyman St
Riverside Ave
Regina Ave
Barranca St
Humboldt St
E Victoria Ct
Shasta Ave
Harborview Ave
Clement Ave
Baywood Ln
Connecticut Ave
Chattleton Ln
University Ave
Barbara Ln
Kirk Ln
Jean Ct
Madrone Way
Westgate Cir
W Victoria Ct
Frieda Ct
Brookside Ave
Regello Ct
Monte Buena St
Dodson St
Judith Ct
Wanlass Ave
Drake Way
Larchmont Ln
18th St
19th St
20th St
19th St
Bush Ave
15th St
15th St
21st St
18th St
Shasta Ave
Glenn Ave
17th St
Merritt Ave
Riverside Ave
14th St
18th St
Dover Ave
19th St
22nd St
Mason St
15th St
16th St
17th St
17th St
Post Ave
Lake St
20th St
21st St
Rivers St
Lake St
Yuba Ave
19th St
22nd St
16th St
17th St
Glenn Ave
Miner Ave
Rose ArborAv e
Bayview A ve
Bolduc Ct
CapitolHill Ave
W estview Pl
NArlington Blvd
HillcrestRd
M
iffinAve
Wanlass
Park
City
Hall
Contra Costa
College
John
Herbert
Davis Park
San Pablo
Lytton
Casino
St. Joseph
Cemetery &
Funeral Center
Rheem Creek
San Pablo Creek
Wildcat Creek
San Pablo Creek
Wildcat Cr eek
San Pablo Creek
BURLINGTON NORTHERN SANTA FE RR
UNION P ACIFIC RAILROAD
Census Tract
3660.01
Census Tract
3660.02
Census Tract
3690.01
Census
T ract
3730
Census Tract
3922
Census Tract
3680.01
Census Tract
3680.02
SOURCE: CalEPA, 2022; City of San Pablo, 2021; Contra Costa County GIS, 2021; Dyett & Bhatia, 2022
0 1,500 3,000750
FEET
City Limits
Sphere of Influence
Major Highway
Major Roads
Railroads
SAN PABLO GE NER AL PLA N UPDATE
Figure 8-1: DACs in San Pablo
J:\GISData\581_SanPablo_GP\GIS\Projects\EJ\7-1_SB535_2022_DACs.mxd Disadvantaged Community
Contra
Costa
Deaths
Contra
Costa
Statewide
National
Death
2030
National
Number Death Rate Death Rate Rate Objective
Note: The U.S. Census Bureau uses a set of money income thresholds that vary by family size and composition to determine who is in poverty.
If a family's total income is less than the family's threshold, then that family and every individual in it is considered in poverty. The official poverty thresholds do not vary geographically, but they are updated for inflation using the Consumer Price Index (CPI-U). The official poverty definition uses money income before taxes and does not include capital gains or noncash benefits (such as public housing, Medicaid, and food stamps) For example, in 2021 this poverty threshold ranged from $14,097 for a single individual under 65 to $27,479 for a family of four and $44,585 for a family of eight.
Note: “College Graduate” includes Associate’s and Bachelor’s degrees.
Æc
Æc
Æc
5 5
5 5
5 5
5 5
5 5
5 5 5
5 5
5 5
5 5
5 G
G
G
G
G
G
G
G
G
G
Richmond Pkwy
23rd St
Giant Rd
Rd 20
Rumrill Blvd
Market Ave
Broadway Ave
Rd 20
Brookside Dr
Church Ln
11th St
Stanton Ave
San Pablo Ave
Rumrill Blvd
Rumrill Blvd
Church Ln
San Pablo Ave
San Pablo Ave
San Pablo Dam Rd
SanPabloDamRd
El Portal Dr
Rd 20
San Pablo Dam Rd
El Portal Dr
§¨¦80
City of
Richmond
City of
Richmond
21st St
11th St
San Pablo Ave
17th St
Vale Rd
Dover Ave
20th St
Stanton Ave
Pine Ave
Miner Ave
19th St
16th St
15th St
Amador St
Rivers St
Sutter Ave
Emeric Ave
12th St
14th St
Hillcrest Rd
Rollingwood Dr
13th St
Sanford Ave
Lake St
Ridge Rd
California Ave
22nd St
18th St
Bush Ave
John Ave
Willow Rd
Alpine Rd
Brook Way
Palmer Ave
Tyler St
Espanola Ct
Van Ness St
Powell St
Arundel WayArundell Way
10th St
Devon Way
Marin Ave
Mason St
Wilcox Ave
Standard St
Post Ave
Chevy Way
Alfreda Blvd
Stone St
Bayo Vista Ave
Kelley Ave
Fordham St
Greenwood Dr
Manor Dr
Yuba Ave
Manchester Ave
Pullman St
Folsom Ave
Mission Ave
Avon Ln
Villa Dr
Mission Bell Dr
Macarthur Ave
Morrow Dr
Beau Rivage
Bowhill Ln
Douglas St
Miflin Ave
Trenton Blvd
Bonita Rd
Merritt Ave Glenlock St
Del Camino Dr
Fillmore St
Pablo Vista Ave
Lovegrove Ave
Glenn Ave
Colin St
Acapulco Dr
Marelia Ct
Bancroft Ln
Montoya Ave
Ventura Ave
Abella Cir
Clare St
Joel Ct
Gerald Ave
Evens Ave
Manzanilla Dr
Carlfield St
Corte St
Ohare Ave
Contra Costa Ave
Casino Ave
Rumrill Rd
Crucero Ave
Wyman St
Riverside Ave
Regina Ave
Barranca St
Humboldt St
E Victoria Ct
Shasta Ave
Harborview Ave
Clement Ave
Baywood Ln
Connecticut Ave
Chattleton Ln
University Ave
Barbara Ln
Kirk Ln
Jean Ct
Madrone Way
Westgate Cir
W Victoria Ct
Frieda Ct
Brookside Ave
Regello Ct
Monte Buena St
Dodson St
Judith Ct
Wanlass Ave
Drake Way
Larchmont Ln
18th St
19th St
20th St
19th St
Bush Ave
15th St
15th St
21st St
18th St
Shasta Ave
Glenn Ave
17th St
Merritt Ave
Riverside Ave
14th St
18th St
Dover Ave
19th St
22nd St
Mason St
15th St
16th St
17th St
17th St
Post Ave
Lake St
20th St
21st St
Rivers St
Lake St
Yuba Ave
19th St
22nd St
16th St
17th St
Glenn Ave
Miner Ave
Rose ArborAv e
Bayview A ve
Bolduc Ct
Ca
pitolHill Ave
W estview Pl
NArlington Blvd
HillcrestRd
MiffinAve
Wanlass
Park
City
Hall
Contra Costa
College
John
Herbert
Davis Park
San Pablo
Lytton
Casino
St. Joseph
Cemetery &
Funeral Center
Rheem Creek
San Pablo Creek
Wildcat Creek
SanPablo Creek
Wildcat Cr eek
San Pablo Creek
BURLINGTON NORTHERN SANTA FE RR
UNION P ACIFIC RAILROAD
SOURCE: USDHHS, 2021; ESRI, 2019; Supermarket/Internet search, 2021; City of San Pablo, 2021; Contra Costa County GIS, 2021; Dyett & Bhatia, 2021 0 1,500 3,000750
FEET
City Limits
Sphere of Influence
Major Highway
Major Roads
Railroads
SAN PABLO GENER A L PLAN UPDATE
Figure 8-2: Health Factors
J:\GISData\581_SanPablo_GP\GIS\Projects\EJ\7-18_HealthFactors.mxd Grocery Store
Market
Corner Store
Drug Store
5 School
Æc Library
G Healthcare Facility
Existing Bike Route
Park
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
Richmond Pkwy
23rd St
Giant Rd
Rd 20
Rumrill Blvd
Market Ave
Broadway Ave
Rd 20
Brookside Dr
Church Ln
11th St
Stanton Ave
San Pablo Ave
Rumrill Blvd
Rumrill Blvd
Church Ln
San Pablo Ave
San Pablo Ave
San Pablo Dam Rd
SanPabloDamRd
El Portal Dr
Rd 20
San Pablo Dam Rd
El Portal Dr
§¨¦80
City of
Richmond
City of
Richmond
21st St
11th St
San Pablo Ave
17th St
Vale Rd
Dover Ave
20th St
Stanton Ave
Pine Ave
Miner Ave
19th St
16th St
15th St
Amador St
Rivers St
Sutter Ave
Emeric Ave
12th St
14th St
Hillcrest Rd
Rollingwood Dr
13th St
Sanford Ave
Lake St
Ridge Rd
California Ave
22nd St
18th St
Bush Ave
John Ave
Willow Rd
Alpine Rd
Brook Way
Palmer Ave
Tyler St
Espanola Ct
Van Ness St
Powell St
Arundel WayArundell Way
10th St
Devon Way
Marin Ave
Mason St
Wilcox Ave
Standard St
Post Ave
Chevy Way
Alfreda Blvd
Stone St
Bayo Vista Ave
Kelley Ave
Fordham St
Greenwood Dr
Manor Dr
Yuba Ave
Manchester Ave
Pullman St
Folsom Ave
Mission Ave
Avon Ln
Villa Dr
Mission Bell Dr
Macarthur Ave
Morrow Dr
Beau Rivage
Bowhill Ln
Douglas St
Miflin Ave
Trenton Blvd
Bonita Rd
Merritt Ave Glenlock St
Del Camino Dr
Fillmore St
Pablo Vista Ave
Lovegrove Ave
Glenn Ave
Colin St
Acapulco Dr
Marelia Ct
Bancroft Ln
Montoya Ave
Ventura Ave
Abella Cir
Clare St
Joel Ct
Gerald Ave
Evens Ave
Manzanilla Dr
Carlfield St
Corte St
Ohare Ave
Contra Costa Ave
Casino Ave
Rumrill Rd
Crucero Ave
Wyman St
Riverside Ave
Regina Ave
Barranca St
Humboldt St
E Victoria Ct
Shasta Ave
Harborview Ave
Clement Ave
Baywood Ln
Connecticut Ave
Chattleton Ln
University Ave
Barbara Ln
Kirk Ln
Jean Ct
Madrone Way
Westgate Cir
W Victoria Ct
Frieda Ct
Brookside Ave
Regello Ct
Monte Buena St
Dodson St
Judith Ct
Wanlass Ave
Drake Way
Larchmont Ln
18th St
19th St
20th St
19th St
Bush Ave
15th St
15th St
21st St
18th St
Shasta Ave
Glenn Ave
17th St
Merritt Ave
Riverside Ave
14th St
18th St
Dover Ave
19th St
22nd St
Mason St
15th St
16th St
17th St
17th St
Post Ave
Lake St
20th St
21st St
Rivers St
Lake St
Yuba Ave
19th St
22nd St
16th St
17th St
Glenn Ave
Miner Ave
Rose ArborAv e
Bayview A ve
Bolduc Ct
CapitolHill Ave
W estview Pl
NArlington Blvd
HillcrestRd
M
iffinAve
Wanlass
Park
City
Hall
Contra Costa
College
John
Herbert
Davis Park
San Pablo
Lytton
Casino
St. Joseph
Cemetery &
Funeral Center
Rheem Creek
San Pablo Creek
Wildcat Creek
San Pablo Creek
Wildcat Cr eek
San Pablo Creek
BURLINGTON NORTHERN SANTA FE RR
UNION P ACIFIC RAILROAD
Rumrill
Sports
Complex
Bush
Street
Park
Kennedy Plaza
Brentz Lane
Neighborhood Park
Wanlass Park
El Portal
Soccer Fields
Wilcat Canyon Regional
Park Alvarado Area
Wildcat
Creek
Trail
San Pablo Area
for Recreation
and Community
SOURCE: CalEPA, 2022; City of San Pablo, 2021; Contra Costa County GIS, 2021; Dyett & Bhatia, 2022
0 1,500 3,000750
FEET
City Limits
Sphere of Influence
Major Highway
Major Roads
Railroads
SAN PABLO GE NER AL PLA N UPDATE
Figure 8-3: Urban Heat
J:\GISData\581_SanPablo_GP\GIS\Projects\EJ\7-19_UrbanHeat.mxd Daytime Land Surface T emperature
Degrees Fahrenheit
High : 111.4
Low : 81.6
This map shows the average daytime land surface temperature based on satellite imagery (USGS Landsat 8, Collection 2 - Level 2 products) of a day in August 2018-2022, intended to
represent a peak summer day in San Pablo.
Richmond Pkwy
23rd St
Giant Rd
Rd 20
Rumrill Blvd
Market Ave
Broadway Ave
Rd 20
Brookside Dr
Church Ln
11th St
Stanton Ave
San Pablo Ave
Rumrill Blvd
Rumrill Blvd
Church Ln
San Pablo Ave
San Pablo Ave
San Pablo Dam Rd
SanPabloDamRd
El Portal Dr
Rd 20
San Pablo Dam Rd
El Portal Dr
§¨¦80
City of
Richmond
City of
Richmond
21st St
11th St
San Pablo Ave
17th St
Vale Rd
Dover Ave
20th St
Stanton Ave
Pine Ave
Miner Ave
19th St
16th St
15th St
Amador St
Rivers St
Sutter Ave
Emeric Ave
12th St
14th St
Hillcrest Rd
Rollingwood Dr
13th St
Sanford Ave
Lake St
Ridge Rd
California Ave
22nd St
18th St
Bush Ave
John Ave
Willow Rd
Alpine Rd
Brook Way
Palmer Ave
Tyler St
Espanola Ct
Van Ness St
Powell St
Arundel WayArundell Way
10th St
Devon Way
Marin Ave
Mason St
Wilcox Ave
Standard St
Post Ave
Chevy Way
Alfreda Blvd
Stone St
Bayo Vista Ave
Kelley Ave
Fordham St
Greenwood Dr
Manor Dr
Yuba Ave
Manchester Ave
Pullman St
Folsom Ave
Mission Ave
Avon Ln
Villa Dr
Mission Bell Dr
Macarthur Ave
Morrow Dr
Beau Rivage
Bowhill Ln
Douglas St
Miflin Ave
Trenton Blvd
Bonita Rd
Merritt Ave Glenlock St
Del Camino Dr
Fillmore St
Pablo Vista Ave
Lovegrove Ave
Glenn Ave
Colin St
Acapulco Dr
Marelia Ct
Bancroft Ln
Montoya Ave
Ventura Ave
Abella Cir
Clare St
Joel Ct
Gerald Ave
Evens Ave
Manzanilla Dr
Carlfield St
Corte St
Ohare Ave
Contra Costa Ave
Casino Ave
Rumrill Rd
Crucero Ave
Wyman St
Riverside Ave
Regina Ave
Barranca St
Humboldt St
E Victoria Ct
Shasta Ave
Harborview Ave
Clement Ave
Baywood Ln
Connecticut Ave
Chattleton Ln
University Ave
Barbara Ln
Kirk Ln
Jean Ct
Madrone Way
Westgate Cir
W Victoria Ct
Frieda Ct
Brookside Ave
Regello Ct
Monte Buena St
Dodson St
Judith Ct
Wanlass Ave
Drake Way
Larchmont Ln
18th St
19th St
20th St
19th St
Bush Ave
15th St
15th St
21st St
18th St
Shasta Ave
Glenn Ave
17th St
Merritt Ave
Riverside Ave
14th St
18th St
Dover Ave
19th St
22nd St
Mason St
15th St
16th St
17th St
17th St
Post Ave
Lake St
20th St
21st St
Rivers St
Lake St
Yuba Ave
19th St
22nd St
16th St
17th St
Glenn Ave
Miner Ave
Rose ArborAv e
Bayview A ve
Bolduc Ct
CapitolHill Ave
W estview Pl
NArlington Blvd
HillcrestRd
M
iffinAve
Wanlass
Park
City
Hall
Contra Costa
College
John
Herbert
Davis Park
San Pablo
Lytton
Casino
St. Joseph
Cemetery &
Funeral Center
Rheem Creek
San Pablo Creek
Wildcat Creek
San Pablo Creek
Wildcat Cr eek
San Pablo Creek
BURLINGTON NORTHERN SANTA FE RR
UNION P ACIFIC RAILROAD
Rumrill
Sports
Complex
Bush Street
Park
Kennedy Plaza
Brentz Lane
Neighborhood
Park
Wanlass Park
Wanlass Park
El Portal Soccer Fields
Wilcat Canyon Regional
Park Alvarado Area
Wildcat
Creek
Trail
San Pablo Area
for Recreation
and Community
SOURCE: Multi-Resolution Land Consortium/National Land Cover Dataset (U.S.
Forestry Service), 2019; City of San Pablo, 2021; Contra Costa County GIS, 2021; Dyett & Bhatia, 2023
0 1,500 3,000750
FEET
City Limits
Sphere of Influence
Major Highway
Major Roads
Railroads
SAN PABLO GE NER AL PLA N UPDATE
Figure 8-4: Tree Canopy
J:\GISData\581_SanPablo_GP\GIS\Projects\EJ\7-20_TreeCanopy.mxd Parks
Tree Canopy Coverage
High : 69%
Low : 1% (0% Not shown)
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
\
\
--- \
-----\, ;------, ----..
I
/
,/
/
\ \
\
\ \
� �r---------\
- Active Fault with Historic
(last 200 years) Displacement
- Active Fault with Holocene
(last 11,000 years) Displacement
Potentially Active Fault with
Quaternary (last 1,600,000 years)
Displacement
\ \ \ \, \
-----.. ... ____ _
� o_cl=--===--5======!0
�
MILES
Figure 9-1
Regional Faults
‐
‐
‐
‐
Severe rainfall has caused parts of San Pablo
to experience flash floods in the past ,
including University Avenue next to
Wildcat Creek.
")
")
")
")
")
")
")
")
")
")
")
")
")
")
")
")
")
")
")
")
")
")
")
")
")
")
")
")
")
")
")
")
")
")
S
S
S
S
S
S
S
S
S
S
S
S
S
S
S
S
S
S
S
S
S
S
S
S
S
S
S
S
S
S
S
S
Richmond Pkwy
23rd St
Giant Rd
Rd 20
Rumrill Blvd
Market Ave
Broadway Ave
Rd 20
Brookside Dr
Church Ln
11th St
Stanton Ave
San Pablo Ave
Rumrill Blvd
Rumrill Blvd
Church Ln
San Pablo Ave
San Pablo Ave
San Pablo Dam Rd
SanPabloDamRd
El Portal Dr
Rd 20
San Pablo Dam Rd
El Portal Dr
§¨¦80
City of
Richmond
City of
Richmond
21st St
11th St
San Pablo Ave
17th St
Vale Rd
Dover Ave
20th St
Stanton Ave
Pine Ave
Miner Ave
19th St
16th St
15th St
Amador St
Rivers St
Sutter Ave
Emeric Ave
12th St
14th St
Hillcrest Rd
Rollingwood Dr
13th St
Sanford Ave
Lake St
Ridge Rd
California Ave
22nd St
18th St
Bush Ave
John Ave
Willow Rd
Alpine Rd
Brook Way
Palmer Ave
Tyler St
Espanola Ct
Van Ness St
Powell St
Arundel WayArundell Way
10th St
Devon Way
Marin Ave
Mason St
Wilcox Ave
Standard St
Post Ave
Chevy Way
Alfreda Blvd
Stone St
Bayo Vista Ave
Kelley Ave
Fordham St
Greenwood Dr
Manor Dr
Yuba Ave
Manchester Ave
Pullman St
Folsom Ave
Mission Ave
Avon Ln
Villa Dr
Mission Bell Dr
Macarthur Ave
Morrow Dr
Beau Rivage
Bowhill Ln
Douglas St
Miflin Ave
Trenton Blvd
Bonita Rd
Merritt Ave Glenlock St
Del Camino Dr
Fillmore St
Pablo Vista Ave
Lovegrove Ave
Glenn Ave
Colin St
Acapulco Dr
Marelia Ct
Bancroft Ln
Montoya Ave
Ventura Ave
Abella Cir
Clare St
Joel Ct
Gerald Ave
Evens Ave
Manzanilla Dr
Carlfield St
Corte St
Ohare Ave
Contra Costa Ave
Casino Ave
Rumrill Rd
Crucero Ave
Wyman St
Riverside Ave
Regina Ave
Barranca St
Humboldt St
E Victoria Ct
Shasta Ave
Harborview Ave
Clement Ave
Baywood Ln
Connecticut Ave
Chattleton Ln
University Ave
Barbara Ln
Kirk Ln
Jean Ct
Madrone Way
Westgate Cir
W Victoria Ct
Frieda Ct
Brookside Ave
Regello Ct
Monte Buena St
Dodson St
Judith Ct
Wanlass Ave
Drake Way
Larchmont Ln
18th St
19th St
20th St
19th St
Bush Ave
15th St
15th St
21st St
18th St
Shasta Ave
Glenn Ave
17th St
Merritt Ave
Riverside Ave
14th St
18th St
Dover Ave
19th St
22nd St
Mason St
15th St
16th St
17th St
17th St
Post Ave
Lake St
20th St
21st St
Rivers St
Lake St
Yuba Ave
19th St
22nd St
16th St
17th St
Glenn Ave
Miner Ave
Rose ArborAv e
Bayview A ve
Bolduc Ct
CapitolHill Ave
W estview Pl
NArlington Blvd
HillcrestRd
MiffinAve
Wanlass
Park
City
Hall
Contra Costa
College
John
Herbert
Davis Park
San Pablo
Lytton
Casino
St. Joseph
Cemetery &
Funeral Center
Rheem Creek
San Pablo Creek
Wildcat Creek
San Pablo Creek
Wildca t Cr eek
San Pablo Creek
BURLINGTON NORTHERN SANTA FE RR
UNION P ACIFIC RAILROAD
SOURCE: FEMA, 2020; Geotracker, State Water Resources Control Board, 2021; Envirostor, Department of Toxic Substances Control, 2023City of San Pablo, 2021; Contra Costa County GIS, 2021; Dyett & Bhatia, 2021
0 1,500 3,000750
FEET
State Water Resources Control Board (SWRCB)
Cleanup Sites
") LUST Cleanup Site
") Cleanup Program Site
S Closed Sites (Case Closed)
Department of T oxic Substances Control (DTSC)
EnviroStor Status (March 2023)
Active
Certified O&M - Land Use Restrictions
Refer to Another Agency
No Further Action
FEMA Flood Hazard Zones
100 year flood zone
500 year flood zone
Figure 9-2: Hazardous Materials and
Flood Hazard Areas
SAN PABLO GENERAL PLAN UPDATE
City Limits
Sphere of Influence
Major Highway
Major Roads
Railroads
San Pablo General Plan 2035
height, allowing water to flow over the top, resulting in flooding downstream. If
such a disaster occurs, 51 miles of roadway and
almost all schools and government buildings in the city would be inundated.20 Policies and programs in this Element seek to reduce the possibility
of this occurrence and mitigate its impact.
The State of California Division of Safety of Dams (DSOD) oversees flood and earthquake safety for the East Bay dams. As part of
its emergency preparedness efforts, the East Bay
Municipal Utility District (EBMUD) prepares inundation maps as guidance to emergency management and other public
agencies. Inundation maps show the flooding that could result from
a h ypothetical failure of a dam or a critical appurtenant structure. The District's dams are considered safe, and failure of a dam is
a highly unlikely event. Between February 2020 and
May
2021, EBMUD updated and received State Department
of
Water Resources (DWR), Division of Safety of Dams
(DSOD) approval for flood inundation maps for its DSOD- regulated dams. EBMUD has a comprehensive Dam Safety
Program. The
District proactively inspects upgrades and
improves its
dams and water supply structures as needed and in
consultation with the regulatory agencies. Engineers monitor dams using instruments, monthly visual inspections and periodic dam safety
reviews to prevent loss of life, personal injury and
property damage from the failure of dams. The safety of each dam is reevaluated with advances
in geotechnical, structural and
earthquake engineering and also if there is evidence of seepage or ongoing ground movement. Most of these dams are under the jurisdiction
of the State Department of Water Resources (DWR),
Division o
f Safety of Dams (DSOD ).
Like San Pablo Dam, Briones Dam also poses a flood risk to the Planning Area. However, the risk from this dam is comparatively less significant due to its greater distance from the city.
Additionally,
Briones Dam is a newer dam (constructed in 1964)
compared to the
San Pablo Dam (constructed in 1920), and its
flood waters are expected to drain southward of its location as well as into San Pablo Dam in the case of dam failure.
MITIGATION OF FLOOD HAZARDS
The extent of damage from flooding can be mitigated in a number of ways, including the identification and avoidance of flood prone
EBMUD Annual Report 2008 and EBMUD Summit Reservoir Replacement Project reports.
9-10
20 Chapter 9: Safety and Noise
areas, planning emergency response, and implementation oflong term flood control projects.
Flood Damage Prevention Ordinance
The City adopted a Flood Damage Prevention Ordinance in 1987 in compliance with requirements of the National Flood Insurance Program (NFIP) and the Federal Emergency Management Agency (FEMA) for development in flood-plain areas. This Ordinance was amended in 2023 to reflect recent changes in FEMA's model ordinance. The stated purpose of the Ordinance is to promote public health, safety, and general welfare, and to minimize public and private losses due to flood conditions in specific areas.
The Municipal Code establishes controls on development in flood hazard areas, such as creek setback requirements and minimum floor elevations above the base flood elevation. The intent of the regulations is to avoid exposing new development to flood hazards and reduce the need for future flood control protective work. The Code is amended as needed to maintain compliance with state and federal regulations.
Floodplain Management and the Local Hazard
Mitigation Plan
The City's Building Services Division is responsible for providing floodplain management for the Planning Area. Its responsibilities include ensuring compliance with the NFIP and maintenance and enforcement of the Flood Damage Prevention Ordinance. The City's Public Works Department is responsible for planning and construction of flood control projects. Additionally, the Department helps prepare and carry out policies in the Contra Costa County Multi-Jurisdictional Local Hazards Mitigation Plan (LHMP), which provides additional planning and direction for flood hazards in the city. The LHMP focuses on the assessment of identified risks and implementation of loss reduction measures to ensure critical City services and facilities survive a disaster. An update to the Contra Costa County LHMP was completed in 2024, with the San Pablo Annex adopted in April 2025.
Storm Drainage Management
The Public Works Department performs cleaning and
maintenance activities on creeks, drainage channels, pipes and catch basins in City easements and rights-of-way in accordance with an established schedule and other standard operating procedures. The City encourages homeowners along the creeks to help keep them clear of obstructions and to purchase flood 9-11
San Pablo General Plan 2035
SN-I-9
SN-I-10
SN-I-11
SN-I-12
SN-I-13
SN-I-14
9-14
Agency or the State Department of Water
Resources and adopt amendments to the General
Plan or the Zoning Ordinance, as warranted.
Continue to participate in the National Flood
Insurance Program and ensure that local
regulations are in full compliance with federal
standards.
Periodically review National Flood Insurance
Program maps to ensure that the City's zoning and
building regulations reduce potential risks from
flooding pursuant to the National Flood Insurance
Program of 1968.
Inform households and businesses located in flood
prone areas about opportunities to purchase flood
insurance.
The City will regularly remind residents of the value
of flood insurance for vulnerable properties through
newsletters and other educational materials.
Purchase of flood insurance is required for buildings
in Special Flood Hazard Areas defined by the Flood
Insurance Rate Map when a federally regulated
lender holds the mortgage on the building.
Site new essential public facilities outside of the
100-year flood plains, including hospital and
healthcare facilities, emergency shelters, police and
fire stations, and emergency communications
facilities, to minimize exposure to 100-year floods.
Cooperate with the County Flood Control District,
California Department of Transportation, and the
Army Corps of Engineers to mitigate potential
flooding risks, including flood control projects on
Wildcat and San Pablo creeks and the maintenance
of drainage facilities and infrastructure.
Flood control projects will be designed to support the
City's efforts to reestablish natural conditions in
these creek corridors.
Work with railroad operators to minimize
downstream flooding related to limited number of
culverts.
!(P
!(F
§¨¦80
City of
Richmond
City of
Richmond
21ST ST
11TH ST
SAN PABLO AVE
17TH ST
VALE RD
DOVER AVE
20TH ST
STANTON AVE
PINE AVE
MINER AVE
19TH ST
16TH ST
15TH ST
AMADOR ST
RIVERS ST
SUTTER AVE
EMERIC AVE
12TH ST
14TH ST
HILLCREST RD
ROLLINGWOOD DR
13TH ST
SANFORD AVE
LAKE ST
RIDGE RD
CALIFORNIA AVE
22ND ST
18TH ST
BUSH AVE
JOHN AVE
WILLOW RD
ALPINE RD
BROOK WAY
PALMER AVE
TYLER ST
ESPANOLA CT
VAN NESS ST
POWELL ST
ARUNDEL WAY
DEVON WAY
MARIN AVE
MASON ST
WILCOX AVE
STANDARD ST
POST AVE
CHEVY WAY
ALFREDA BLVD
STONE ST
BAYO VISTA AVE
KELLEY AVE
FORDHAM ST
GREENWOOD DR
MANOR DR
YUBA AVE
MANCHESTER AVE
PULLMAN ST
FOLSOM AVE
MISSION AVE
AVON LN
VILLA DR
MISSION BELL DR
MACARTHUR AVE
MORROW DR
BEAU RIVAGE
BOWHILL LN
DOUGLAS ST
MIFLIN AVE
TRENTON BLVD
BONITA RD
MERRITT AVE
GLENLOCK ST
DEL CAMINO DR
FILLMORE ST
PABLO VISTA AVE
LOVEGROVE AVE
GLENN AVE
COLIN ST
ACAPULCO DR
MARELIA CT
BANCROFT LN
MONTOYA AVE
VENTURA AVE
ABELLA CIR
CLARE ST
JOEL CT
GERALD AVE
EVENS AVE
MANZANILLA DR
CARLFIELD ST
CORTE ST
OHARE AVE
CONTRA COSTA AVE
CASINO AVE
RUMRILL RD
WYMAN ST
RIVERSIDE AVE
REGINA AVE
BARRANCA ST
HUMBOLDT ST
E VICTORIA CT
SHASTA AVE
HARBORVIEW AVE
CLEMENT AVE
CONNECTICUT AVE
CHATTLETON LN
UNIVERSITY AVE
BARBARA LN
KIRK LN
JEAN CT
MADRONE WAY
WESTGATE CIR
W VICTORIA CT
FRIEDA CT
BROOKSIDE AVE
MONTE BUENA ST
DODSON ST
JUDITH CT
WANLASS AVE
DRAKE WAY
LARCHMONT LN
18TH ST
19TH ST
20TH ST
19TH ST
BUSH AVE
15TH ST
15TH ST
21ST ST
18TH ST
SHASTA AVE
GLENN AVE
17TH ST
MERRITT AVE
RIVERSIDE AVE
14TH ST
18TH ST
DOVER AVE
19TH ST
22ND ST
MASON ST
15TH ST
16TH ST
17TH ST
POST AVE
LAKE ST
20TH ST
21ST ST
RIVERS ST
YUBA AVE
19TH ST
22ND ST
16TH ST
17TH ST
MINER AVE
ROSE ARBOR A VE
Bayview A ve
BOLDUC CT
CAPITO
LH
ILL AVE
W ESTVIEW
PL
N
ARLINGTONBLVD
H
ILLCREST
RD
MI
FFIN
AVE
EL PORTAL DR SAN PABLO DAM RD
ROAD 20ROAD 20
BROOKSIDE DR
MARKET AVE
MARKET ST CHURCH LN
CHURCH LN
23RD ST
VALENCIA WAY
BROADWAY
ROAD 20 RUMRILL BLVD
CHESLEY AVE
RICHMOND PKWY
RICHMOND PKWY
City
Hall
Contra Costa
College
John
Herbert
Davis Park
San Pablo
Lytton
Casino
St. Joseph
Cemetery &
Funeral Center
Wanlass
Park
Rheem Creek
San Pablo Creek
Wildcat Creek
San Pablo Creek
Wildcat Cr eek
San Pablo Creek
BURLINGTON NORTHERN SANTA FE RR
UNION PACIFIC RR
LRA
FRA
SOURCE: Fire Hazard Severity Zones in LRA, CAL FIRE, February, 2025; City of San Pablo, 2024; Contra Costa County GIS, 2024; Dyett & Bhatia, 2024
0 0.2 0.40.1
Miles
J:\GISData\581_SanPablo_GP\GIS\Projects\GeneralPlan\General Plan Map Updates\Figure 9-3 Wildfire Hazards.mxd Figure 9-3:
City Limits
Sphere of Influence
Major Roads
Minor Roads
Railroads
Wildfire Hazards
Responsibility Area
Local Responsibility Area
Federal Responsibility Area
Fire Hazard Severity Zone in LRA
Very High
High
Moderate
!(P Police Station
!(F Fire Station
As of May 2025, this map is in Draft form pending
adoption by Contra Costa County Fire Protection District.
LRA
FRA
Chapter 9: Safety and Noise
contaminated, or are being stored prior to proper disposal.
Hazardous materials and hazardous wastes are classified according to four properties: toxic (causes human health effects), ignitable (has the ability to burn), corrosive (causes severe burns or damage to materials), and reactive (causes explosions or generates toxic gases).
HAZARDOUS MATERIALS SITES
Areas where historic or on-going activities have resulted in the known or suspected release of hazardous materials to soil and groundwater or to the air, as identified by the San Francisco Bay Regional Water Quality Control Board (RWQCB) and California Department of Toxic Substances (DTSC), are shown in Figure 9-
2. Sites listed by the RWQCB include those that are from their Leaking Underground Storage Tank (LUST) program and other non-underground tank sites. There is only one active site within San Pablo that is overseen by the DTSC.
In San Pablo, sites with contamination are largely clustered around major roadways where light industrial and commercial uses are located, including Rumrill Boulevard, San Pablo Avenue, and San Pablo Dam Road. This contamination may be the result of underground storage tank (UST) releases, spills, accidental releases or other activities involving the use of hazardous materials. In general, the areas highlighted are industrial and manufacturing areas, although some represent gas stations, dry cleaners or other small businesses.
Releases, leaks, or disposal of chemical compounds, such as petroleum hydrocarbons, on or below the ground surface can lead to contamination of underlying soil and groundwater. Depending on the conditions and intensity of the release, groundwater contamination can migrate beyond the property boundary of the original release site. Disturbance of a previously contaminated area through grading or excavation operations could expose the public to health hazards from physical contact with contaminated materials or hazardous vapors. Improper handling or storage of contaminated soil and groundwater can further expose the public to these hazards, or potentially spread contamination through surface water runoff or air-borne dust. In addition, contaminated groundwater can spread down gradient, potentially contaminating subsurface areas of surrounding properties.
9-19
21 21
Opened in April 2021, Fire Station 70 provides
fire and emergency services from a central
location on 23rd Street
Chapter 9: Safety and Noise
EMERGENCY PLANNING
The California Emergency Services Act requires cities to prepare and maintain an Emergency Plan for natural, humanmade, or war-caused emergencies that result in conditions of disaster or in extreme peril to life. The San Pablo Emergency Operations Manual was adopted in 1999 and updated in 2020. Further revisions are anticipated for final approval in July 2024. The Manual outlines the City's response to different types of disaster situations, including seismic hazards, extreme weather conditions, and flooding. It establishes the chain of command, operational areas and responsibilities for different City departments as well as individuals and defines the City's response in four response and recovery phases: increased readiness, initial response operations, extended response operations, and recovery operations. The Manual is meant to work in conjunction with other disaster mitigation plans of the region, such as the Association of Bay Area Governments (ABAG) Local Hazard Mitigation Plan (see below) and the State Emergency Plan.
EVACUATION ROUTES & POTENTIAL SHELTER
SITES
The City has identified several evacuation routes through San Pablo to be used in case of catastrophic emergencies. The names of the streets are known to emergency services but not publicly identified. The location, extent and the severity of a disaster will determine which routes and which direction people must take in order to escape or avoid the afflicted areas. Additionally, possible emergency shelter sites have been identified internally. The City does not publish these sites in advance of an emergency for fear of having people congregate at a site that would not be opened or placing them in harm's way. The type and severity of the emergency will determine which site will be opened.
In the event of a natural or human-made disaster, the City will coordinate with the Red Cross, Salvation Army, and State and federal agencies to provide emergency relief and disaster recovery.
LOCAL HAZARD MITIGATION PLANNING
The purpose of a Local Hazard Mitigation Plan (LHMP) is to reduce or eliminate long term risk to human life and property resulting from hazards, by identifying risks before they occur and putting together resources, information, and strategies for emergency response. In San Pablo, hazard mitigation planning is carried out collectively at the County level owing to the proximity 9-23
San Pablo General Plan 2035
of difkrmt cities and thdr joint ('Xposure to earthquakes and other regio11.1l ha,,mls. Contra Costa Co11nty is the le.-d .1gency on the Local Hazard Mitigation Plan for the County and its participating juri�dictions. The l.HMP ror Lhe Conl.Ta Co�la County phmning ,trea was developed in accordance with the Disaster Mitigation Act of 2000 and followed i;EMA's Local Ila:mrd Mitigation Plan guidance. The Ll!Ml' incorporates a prncess whereby hazards are identified and profiled, the people and facilities at risk arc analyzed, and mitigation actions arc developed to reduce or eliminate h,1zard risk. The implementation of these mitigation actions, which include hol.h �lwrl. and long-term sl.Tategie�. involve planning, policy changes, programs, projects, and other acl.i vii ies.
Volume I of the 2024 Contra Costa County LI l.\1P can be found in the .l:kforences se.:tion of this .:haptc-r (Se.:tion 7. 9).
As a participant in the mull.i-jurisdictional planning process, Cily staff helped in the development and review of the comprehensive list of mitigation strategics in the plan. The plan includes a San Pablo annex which lists info.-mation most relevant to San Pablo in th(' areas of h('alth, infrastrn.:turc, housing, gov('rnmcnt, environment, ,md l,md use. The plan wa8 adopted in April of 2025. 1\ link lo The San P,1blo i\nnex or the 202•1 Contn1 Costa Co11nly HMP can he round in Section 7.9.
The City's Emergency Operations Manual estal>lishes procedures in case of emergencies.
9-24
•
San Pablo General Plan 2035
SN-I-27
SN-I-28
SN-I-29
9-26
in the event of an emergency as a West
County Regional EOC.
An EOC is a place where city staff can come
together during an emergency to coordinate
response and recovery actions and resources.
These centers may alternatively be called
command centers, situation rooms, "war
rooms", crisis management centers, or other
similar terms. Regardless of the term, this is
where the coordination of information and
resources takes place. The EOC is not an
incident command post; rather, it is the
operations center where coordination and
management decisions are facilitated. An
EOC may serve a number of uses including
operations, training, meetings and other
uses. The new Police Headquarters and
Training Facility includes space for a West
County Regional EOC.
Continue to share information and develop joint
law enforcement efforts with adjacent jurisdictions
and other public safety agencies.
The Police Department will continue to participate
in regional cooperative efforts such as the West
Contra Costa County (WCCC) Chiefs Committee,
WCCC Narcotics, and WCCC Gang Intervention
meetings.
Continue to partner with schools and youth
organizations in San Pablo to conduct law
enforcement outreach and conflict resolution
programs.
The Police Department will continue its Juvenile
Education & Welfare Liaison (JEWL) Program,
Gang Reduction Education and Training (GREAT),
GREAT Summer Program, and other programs;
work with schools to develop conflict resolution,
peacemaking, and anger management training; and
develop anti-crime curriculums.
Continue to engage the community to formulate
crime prevention and public safety strategies
through public relations, community forums, and
neighborhood based public safety programs.
Chapter 9: Safety and Noise
The City has established community programs such
as Neighborhood Watch, Business Watch, and the
Community Police Academy that create
opportunities for dialogue and perspective sharing to
understand community priorities. These programs
engage youth, ethnic communities, business
community, the elderly, and other community
members, incorporating community concerns and
helping to identify consensus on community safety
priorities and program approaches.
Additional policies related to fire protection are in
the section 'Fire Hazards'.
Emergency Management
SN-I-30
SN-I-31
SN-I-32
SN-I-33
SN-I-34
Adopt and periodically update the City's
Emergency Operations Plan.
In consultation with the Police Department, the
County Fire Protection District and other
emergency service providers, develop an
emergency evacuation map showing potential
evacuation routes and maintain a list of emergency
shelters to be used in case of catastrophic
emergencies.
Initiate periodic public information programs that
explain the City's emergency preparedness
programs and encourage each household to be self
sufficient for 72 hours after a human-made or
natural disaster.
Continue to participate in the multi-jurisdictional
hazard mitigation planning process and implement
policies in the latest multi-jurisdictional Hazard
Mitigation Plan.
The federal Disaster Mitigation Act of 2000 requires
that cities, counties, and special districts have a Local Hazard Mitigation Plan to be eligible to receive
FEMA hazard mitigation funds. The City is part of
the Contra Costa County multi-jurisdictional Local
Hazard Mitigation Plan . .
Develop effective mechanisms for a coordinated
response to natural and man-made emergencies by:
9-27
•
•
•
Chapter 9: Safety and Noise
Noise Measurement
Three aspects of community noise are used in assessing the noise environment:
Level (e.g., magnitude or loudness) of sound. Sound levels are measured and expressed in decibels (dB) with 10 dB roughly equal to the threshold of hearing. Figure 9-4 shows the decibel levels associated with different common sounds.
Frequency composition or spectrum of the sound. Frequency is a measure of the pressure fluctuations per second, measured in units of hertz (Hz). The characterization of sound level magnitude with respect to frequency is the sound spectrum, often described in octave bands, which divide the audible human frequency range (e.g., from 20 to 20,000 Hz) into ten segments.
Variation in sound level with time, measured as noise exposure.
Most community noise is produced by many noise sources that change gradually throughout the day and produce a relatively steady background noise having no identifiable source.
Identifiable events of brief duration, such as aircraft flyovers, cause the community noise level to vary from instant to instant. A single number called the equivalent sound level or Lcq describes the average noise exposure level over a period of time.
Transient noise events may be described by their maximum A weighted noise level (dBA) Hourly -Lcq values are called Hourly Noise Levels.
Reporting Noise Levels
Measuring and reporting noise levels involves accounting for variations in sensitivity to noise during the daytime versus nighttime hours. Noise descriptors used for analysis factor in human sensitivity to nighttime noise when background noise levels are generally lower than in the daytime and outside noise intrusions are more noticeable. Common descriptors include the Community Noise Equivalent Level (CNEL) and the Day-Night Average Level (DNL, symbol (Ldn). Both reflect noise exposure over an average day with weighting to reflect the increased sensitivity to noise during the evening and night. The CNEL descriptor is used in relation to major continuous noise sources, such as aircraft or traffic, and is the reference level for the Noise Element.
Knowledge of the following relationships is helpful in
understanding how changes in noise and noise exposure are perceived:
9-29
•
•
•
•
•
Chapter 9: Safety and Noise
NOISE SOURCES IN SAN PABLO
The major sources of noise in San Pablo are related to vehicular traffic, including automobile and truck traffic on arterial roads and Interstate 80, and rail operations along Giant Road. Schools, industrial areas and construction sites may also generate noise during the day. Existing noise contours are shown in Figure 9-5.
Traffic Noise
Traffic noise depends primarily on the speed of traffic and the percentage of truck traffic. The primary source of noise from automobiles is high frequency tire noise, which increases with speed. In addition, trucks and older automobiles produce engine and exhaust noise, and trucks also generate wind noise. While tire noise from cars is located at ground level, truck noise sources can be as high as ten to fifteen feet above the roadbed due to tall exhaust stacks and higher engines. Sound walls are not effective for mitigating such noise unless they are very tall.
Maximum noise levels of DNL 60 dB are considered "normally acceptable" for unshielded residential development. Noise levels from DNL 60 dB to 70 dB fall within the "conditionally
unacceptable" range, and those in the DNL 70 to 75 dB range are "normally unacceptable."
Noise exposure contours for San Pablo were modeled by applying the Federal Highway Administration's noise modeling procedure.
These noise contours are conservative, meaning that the contours are modeled with no noise attenuation from natural barriers and buildings. Automobile traffic on Interstate 80 creates the highest amount of noise with noise levels exceeding 80 dB during peak hours at 100 feet from the highway. San Pablo Avenue, Rumrill Boulevard, and 23rd Street also produce a high amount of traffic noise, especially near intersections.
Noise from Trains along the BNSF Railroad
Rail operations contribute to the noise environment in San Pablo.
The BNSF railroad corridor (formerly Burlington Northern Santa Fe) along Giant Road at the western edge of the Planning Area primarily carries freight trains. These trains generally travel at speeds of about 30 miles per hour and generate high noise levels when crossing roadways at-grade. Noise levels typically range from DNL 60 to 70 dB at 100 feet from the railroad tracks. Because train noise only lasts a few minutes every time and occurs only a few times a day, they are not considered as severe as noise from a construction site or Interstate 80.
9-31
EL
PORTAL DR
I 80
GIANT RD
23RD ST
EL PORTAL DR
HILLTOP DR
SAN PABLO DAM RD
MARKET AVE
BROOKSIDE DR
SAN PABLO AVE
ROAD 20
RUMRILL BLVD
BROADWAY AVE
CHURCH LN
ROBERT H MILLER DR
MARKET ST
13TH ST
RICHMOND PKWY
CHURCH LN
RICHMOND PKWY
ROAD 20
SAN PABLO AVE
SAN PABLO AVE
HILLTOP DR
SAN PABLO AVE
21ST ST
DOVER AVE
VALE RD
20TH ST
STANTON AVE
PINE AVE
MINER AVE
19TH ST
AMADOR ST
EMERIC AVE
SUTTER AVE
12TH ST
RIVERS ST
HILLCREST RD
ROLLINGWOOD DR
SANFORD AVE
17TH ST
15TH ST
LAKE ST
RIDGE RD
22ND ST
14TH ST
18TH ST
BUSH AVE
11TH ST
CALIFORNIA AVE
WILLOW RD
JOHN AVE
BROOK WAY
TYLER ST
VAN NESS ST
PALMER AVE
ESPANOLA DR
DEVON WAY
ARUNDEL WAY
MANOR DR
POWELL ST
CHEVY WAY
MARIN AVE
ROAD 20
MASON ST
WILCOX AVE
13TH ST
STONE ST
GREENWOOD DR
KELLEY AVE
AVON LN
FOLSOM AVE
FORDHAM ST
CASTRO RD
MISSION AVE
PULLMAN ST
MORROW DR
ALPINE RD
MANCHESTER AVE
MAC ARTHUR AVE
DEL CAMINO DR
DOUGLAS ST
KIRK LN
BOWHILL LN
TRENTON BLVD
YUBA AVE
BRENTZ LN
16TH ST
LOVEGROVE ST
GLENLOCK ST
MORAGA ST
ACAPULCO DR
MERRITT AVE
PABLO VISTA AVE
MONTOYA AVE
MIFLIN AVE
COLIN ST
BANCROFT LN
VENTURA AVE
GLENN AVE
JOEL CT
OHARE AVE
BANK LN
GERALD AVE
RIDGE LN
ALFREDA BLVD
WYMAN ST
CASINO AVE
CONTRA COSTA AVE
MANZANILLA DR
POST AVE
RUMRILL DR
CARLFIELD ST
REGINA AVE
STANDARD AVE
MARELIA CT
RIVERSIDE AVE
VALENCIA WAY
MISSION BELL DR
CLARE ST
HUMBOLDT AVE
E VICTORIA CT
UNIVERSITY AVE
CONNECTICUT AVE
STONINGTON AVE
N ARLINGTON BLVD
BARBARA LN
FILLMORE ST
SHASTA AVE
COALPORT ST
MADRONE WAY
27TH ST
FRIEDA CT
CHESLEY AVE
23RD ST
RANDY LN
ALVARADO SQ
ALAN CT
BAKER ST
DODSON ST
MONTE BUENA DR
BROOKSIDE AVE
W VICTORIA CT
JUDITH CT
SHEFFIELD CT
BROOKHAVEN CT
MURRA CT
26TH ST
MUIR ST
RHEEM AVE
20TH ST
18TH ST
18TH ST
21ST ST
11TH ST
13TH ST
17TH ST
18TH ST
MISSION BELL DR
17TH ST
16TH ST
19TH ST
GLENN AVE
LAKE ST
BUSH AVE
15TH ST
16TH ST
18TH ST
19TH ST
MISSION BELL DR
15TH ST
22ND ST
21ST ST
POST AVE
19TH ST
19TH ST
MASON ST
14TH ST
14TH ST
YUBA AVE
15TH ST
22ND ST
MERRITT AVE
20TH ST
19TH ST
17TH ST
0 0.50.25
Miles
SOURCE: Charles Salter Associates, 2009;
Contra Costa County, 2010; City of San Pablo, 2010;
Dyett & Bhatia, 2010.
> 55 dB
> 60 dB
> 65 dB
> 70 dB
> 75 dB
Existing Noise Contours
UNION PACIFIC RR
BURLINGTON NORTHERN SANTA FE RR
Planning Area
City Limits
Major Roads
Minor Roads
Railroads
Figure 9-5
EL
PORTAL DR
I 80
GIANT RD
23RD ST
EL PORTAL DR
HILLTOP DR
SAN PABLO DAM RD
MARKET AVE
BROOKSIDE DR
SAN PABLO AVE
ROAD 20
RUMRILL BLVD
BROADWAY AVE
CHURCH LN
ROBERT H MILLER DR
MARKET ST
13TH ST
RICHMOND PKWY
CHURCH LN
RICHMOND PKWY
ROAD 20
SAN PABLO AVE
SAN PABLO AVE
HILLTOP DR
SAN PABLO AVE
21ST ST
DOVER AVE
VALE RD
20TH ST
STANTON AVE
PINE AVE
MINER AVE
19TH ST
AMADOR ST
EMERIC AVE
SUTTER AVE
12TH ST
RIVERS ST
HILLCREST RD
ROLLINGWOOD DR
SANFORD AVE
17TH ST
15TH ST
LAKE ST
RIDGE RD
22ND ST
14TH ST
18TH ST
BUSH AVE
11TH ST
CALIFORNIA AVE
WILLOW RD
JOHN AVE
BROOK WAY
TYLER ST
VAN NESS ST
PALMER AVE
ESPANOLA DR
DEVON WAY
ARUNDEL WAY
MANOR DR
POWELL ST
CHEVY WAY
MARIN AVE
ROAD 20
MASON ST
WILCOX AVE
13TH ST
STONE ST
GREENWOOD DR
KELLEY AVE
AVON LN
FOLSOM AVE
FORDHAM ST
CASTRO RD
MISSION AVE
PULLMAN ST
MORROW DR
ALPINE RD
MANCHESTER AVE
MAC ARTHUR AVE
DEL CAMINO DR
DOUGLAS ST
KIRK LN
BOWHILL LN
TRENTON BLVD
YUBA AVE
BRENTZ LN
16TH ST
LOVEGROVE ST
GLENLOCK ST
MORAGA ST
ACAPULCO DR
MERRITT AVE
PABLO VISTA AVE
MONTOYA AVE
MIFLIN AVE
COLIN ST
BANCROFT LN
VENTURA AVE
GLENN AVE
JOEL CT
OHARE AVE
BANK LN
GERALD AVE
RIDGE LN
ALFREDA BLVD
WYMAN ST
CASINO AVE
CONTRA COSTA AVE
MANZANILLA DR
POST AVE
RUMRILL DR
CARLFIELD ST
REGINA AVE
STANDARD AVE
MARELIA CT
RIVERSIDE AVE
VALENCIA WAY
MISSION BELL DR
CLARE ST
HUMBOLDT AVE
E VICTORIA CT
UNIVERSITY AVE
CONNECTICUT AVE
STONINGTON AVE
N ARLINGTON BLVD
BARBARA LN
FILLMORE ST
SHASTA AVE
COALPORT ST
MADRONE WAY
27TH ST
FRIEDA CT
CHESLEY AVE
23RD ST
RANDY LN
ALVARADO SQ
ALAN CT
BAKER ST
DODSON ST
MONTE BUENA DR
BROOKSIDE AVE
W VICTORIA CT
JUDITH CT
SHEFFIELD CT
BROOKHAVEN CT
MURRA CT
26TH ST
MUIR ST
RHEEM AVE
20TH ST
18TH ST
18TH ST
21ST ST
11TH ST
13TH ST
17TH ST
18TH ST
MISSION BELL DR
17TH ST
16TH ST
19TH ST
GLENN AVE
LAKE ST
BUSH AVE
15TH ST
16TH ST
18TH ST
19TH ST
MISSION BELL DR
15TH ST
22ND ST
21ST ST
POST AVE
19TH ST
19TH ST
MASON ST
14TH ST
14TH ST
YUBA AVE
15TH ST
22ND ST
MERRITT AVE
20TH ST
19TH ST
17TH ST
0 0.50.25
Miles
> 55 dB
> 60 dB
> 65 dB
> 70 dB
> 75 db
Future Noise Contours
UNION PACIFIC RR
BURLINGTON NORTHERN SANTA FE RR
Planning Area
City Limits
Major Roads
Minor Roads
Railroads
Figure 9-6
SOURCE: Charles Salter Associates, 2009;
Contra Costa County, 2010; City of San Pablo, 2010;
Dyett & Bhatia, 2010.
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
San Pablo General Plan 2035
9-40
or engineer. The vibration levels shall not exceed
PTA architectural damage thresholds (e.g., 0.12
in/ sec Peak Particle Velocity (PPV) for fragile or
historical resources, 0.2 in/sec PPV for non
engineered timber and masonry buildings, and
0.3 in/sec PPV for engineered concrete and
masonry). If vibration levels would exceed this
threshold, alternative uses such as drilling piles
as opposed to pile driving, static rollers as
opposed to vibratory rollers, and lower
horsepower earthmoving equipment shall be
used. If necessary, construction vibration
monitoring shall be conducted to ensure Federal
Transit Administration (FT A) vibration
thresholds are not exceeded.
55 60 65 70 75 80
10 The General Plan provides specific policy guidance for implementation of Plan concepts in each of the Plan elements.
This framework establishes a basis for coordinated action by the City, adjacent jurisdictions, Contra Costa County and other regional and local agencies or responsible parties . This chapter describes the process in general terms and the major actions to be undertaken by the City; the implementing policies in each element of the Plan provide details that will guide program development.
The major implementation process for the land use proposals will be administration of the Zoning Ordinance through the land use and development regulations contained within the Ordinance and in the use designations shown in the Zoning Map, as well as by pertinent State Law where it pre -empts local zoning authority (e.g., Accessory Dwelling Unit, Duplex (SB9), and density bonus requirements) . As such, t he Zoning Ordinance will need to be amended to be consistent with the General Plan's implementing policies. The Subdivision Ordinance, Sign Regulations, and other affected portions of the Municipal Code may also need to be amended to better reflect the policies contained within the Plan.
The City’s Capital Improvement Program will be the primary means of scheduling and funding infrastructure improvements of Citywide benefit. The City’s impact fees should also be updated based on the recommendations made in the General Plan.
In many areas, General Plan implementation will depend on actions of other public agencies and of the private sector, which will fund most of the development expected in the next 20 years. The General Plan will serve a coordinating function for private sector decisions; it also provides a basis for action on individual development applications, which must be found to be consistent with the General Plan policies if they are to be approved.
10 IMPLEMENTATION &
MONITORING
San Pablo General Plan 2035
10-2
10.1 Responsibilities
The General Plan provides specific policy guidance for
implementation of plan concepts. Implementing these policies will involve coordinated actions by the City Council, the Planning Commission, other City boards and commissions, and City departments. The City also will need to work with Contra Costa County and other public agencies to implement policies that involve cooperation or would affect the region.
The principal responsibilities that City officials and staff have for Plan implementation are briefly summarized below; details on their powers and duties are provided in the San Pablo Municipal Code.
CITY COUNCIL
The City Council is responsible for the overall management of municipal affairs; it acts as the legislative body and is responsible for adoption of the General Plan and any
amendments to the General Plan. The City Council selects a Mayor annually, who serves as presiding officer during all City Council meetings and study sessions. The City appoints the City Manager who is the chief administrator of the City and has overall responsibility for the day-to-day implementation of the General Plan. The City Council also appoints other boards and commissions established unde r the Municipal Code.
The City Council's role in implementing the General Plan will be to set implementation priorities and approve zoning map and text amendments, consistent with the General Plan, as well as to approve a Capital Improvement Program and budget to carry out the Plan.
Since the dissolution of Redevelopment agencies in California in 2012, the City Council sits as the oversight board of the Local Successor Agency .
PLANNING COMMISSION
The Planning Commission is responsible for preparing and recommending adoption or amendment of the General Plan, zoning and subdivision ordinances and other regulations, design guidelines, resource conservation plans, and programs and legislation needed to implement the General Plan. The Planning Commission also may prepare and recommend
adoption of specific plans, neighborhood plans or special plans, as needed for Plan implementation.
Chapter 10: Implementation & Monitoring
10-3
PLANNING DIVISION
The Planning Division is responsible for the general planning and development review functions undertaken by the City.
Specific duties related to General Plan implementation include preparing zoning and subdivision ordinance amendments, design guidelines, reviewing development applications, providing advice to project applicants, conducting investigations and making reports and recommendations on planning and land use, zoning, subdivisions, development plans and projects. Among other responsibilities, the Planning Division reviews projects for compliance with the California Environmental Quality Act (CEQA), and is responsib le for preparing environmental documents such as Negative Declarations, Mitigated Negative Declarations and Environmental Impact Reports. Finally, the Division has the primary responsibility for preparing the annual report on the General Plan and conducting the five -year review.
These reporting requirements are described in Chapter 1 of the General Plan. Additional reporting requirements apply to the Housing Element, which is contained in a separate document from the remainder of the General Plan.
BUILDING SERVICES DIVISION
The Building Services Division of the Community Development Department (which also contains the Planning Division) is responsible for reviewing all development plans, reviewing plan checks, and issuing building permits for any remodeling or new construction. This Divisions also administers the City’s Residential, Health, and Safety program, Flood Hazard Program, and Business License issuance. They are a key player in the City’s Code Enforcement efforts.
HOUSING AND ECONOMIC DEVELOPMENT
DIVISION
The Housing and Economic Development Division of the City Manager’s office oversees the City’s Local Successor Agency responsibilities and helps to promote housing development and resources in the City as well as economic development
opportunities. They work closely with the Economic Development Corporation and the Community Development Department.
San Pablo General Plan 2035
10-4
PUBLIC WORKS DEPARTMENT/ ENGINEERING
DIVISION
The Public Works Department’s Engineering Division
provides overall administration and support for General Plan policies related to infrastructure. Engineering staff is responsible for providing assistance and guidance to the general public and developers in regard to requirements and regulations for street, sidewalk, storm drainage, paving, grading, and other capital improvements. Public Works is also charged with the task of maintaining and improving all City - owned street trees, park trees, and all other trees considered to be publicly owned trees. In addition to these responsibilities, Public Works provides building review and inspections, issues and monitors encroachment and grading permits, maintains traffic counts and speed studies on major arterial and collector streets throughout the city, and oversees the proper operation of the city -wide traffic signal system. This department also plans and administers municipal capital improvements, storm water pollution control, and pavement management programs within the City. To carry out the General Plan, Public Works is tasked with preparing the Capital Improvement Program.
Other specific responsibilities are established in the Land Use & Physical Design, Circulation, Housing, and Public Utilities elements of the General Plan.
COMMUNITY SERVICES/RECREATION DIVISION
The Recreation Division of the Community Services
Department is responsible for managing the City’s recreation services, its parks and open spaces, and various public facilities such as the Community Center, Senior Center, Maple Hall, City-owned Historic Properties and others. It also manages youth activities and senior services. Specific implementing responsibilities are established in the Parks and Open Space Element of the General Plan.
POLICE DEPARTMENT
The San Pablo Police Department is responsible for the
protection of life and property within the City. The Department is tasked with the preservation of peace and order, suppression of crime, regulation and control of traffic, and enforcement of State laws and local codes intended to reduce public hazards.
Its specific responsibilities in the General Plan are established in the Community Health & Environmental Justice, Housing and Land Use elements of the General Plan.
Chapter 10: Implementation & Monitoring
10-5
OTHER COMMISSIONS, COMMITTEES AND
BOARDS
City Council Standing Committees
The San Pablo City Council has four regular standing
committees that meet regularly to discuss topical area issues prior to bringing them to the full Council for consideration.
These include the Budget, Fiscal & Legislative Standing Committee, Public Safety Standing Committee, Community
Services Standing Committee, and the Economic Development, Housing, and Project Management Standing Committee.
Youth Commission
The Youth Commission acts as an advisory body in matters of youth needs, concerns, problems and social awareness.
San Pablo Senior Advisory Board
The San Pablo Senior Advisory Board (SPSAB) was formed
in 1979 and operates in cooperation with the City of San Pablo and a designated city representative . The purpose of the SPSAB is to provide social, recreational, civic, and educational activities for the senior population of the City of San Pablo and the surrounding area. T he SPSAB, in
cooperation with the City, works to identify programs that will meet the needs of the senior population. Volunteer SPSAB members meet monthly and participate in advocacy
and fundraising efforts for the Senior Center. They invite public comment and suggestions for innovative and
resourceful activities and services to integrate into the San Pablo Senior Center. Programing decisions are made by the SPSAB with City staff present at all meetings to provide feedback on feasibility. City staff work in collaboration with the SPSAB on program implementation and operation of the San Pablo Senior Center.
San Pablo Community Foundation Grant Program
The Annual San Pablo Community Foundation Grant
Program (SPCFGP) aims to provide one -time financial
assistance to local community service organizations and non-profit organizations for program services, activities, and special events that primarily benefit the residents of incorporated San Pablo.
San Pablo General Plan 2035
10-6
Citizens Oversight Committee Measure S and K
The Committee reviews and reports on all revenues and
expenditures received by the City of San Pablo from the transactions and use taxes imposed pursuant to Measures S (formerly Q) and K and to ensure that tax revenues are spent by the City in a manner con sistent with the voter -approved measure, as well as any other voter-approved or council-approved priorities adopted to implement the provisions of Measure S (formerly Q).
These funds have been used for public safety programs; job creation, placement, and training; local school-based programs for at-risk youth; mental health initiatives; and childhood obesity prevention programs.
San Pablo/ Manzanillo Sister City Committee
Since the early 1970s, the City of San Pablo maintains a Sister City International (SCI) designation, formerly established under the National Leage of Cities, with the City of
Manzanillo, Mexico to engage in the promotion of
international relations, good will and understanding; with a further emphasis on charitable giving, promotion of culture, and literacy and educational opportunities in partnership.
10.2 The Plan and the Regulatory
System
The City will use a variety of regulatory mechanisms and administrative procedures to implement the General Plan. Overall responsibility for plan implementation is vested in the City Council and Planning Commission. Establishing and maintaining consistency between the General Plan and Zoning Ordinance and other planning documents is good planning policy and is called for in this General Plan. In fact, the consistency requirement is the keystone of Plan implementation. Without a consistency requirement, there is no assurance that Plan policies will be implemented and that environmental resources earmarked for protection in the Plan will be preserved. Other regulatory mechanisms, including subdivision approvals, building and housing cod es, capital improvement programs, and environmental review procedures also will be used to implement Plan policies. All project approvals must be found consistent with the General Plan policies.
Chapter 10: Implementation & Monitoring
10-7
ZONING REGULATIONS
The City's Zoning Ordinance will translate plan policies into specific use regulations, development standards and
performance criteria that will govern development on
individual properties. The General Plan establishes the policy framework, while the Zoning Ordinance prescribes standards, rules and procedures for development. The Zoning Map will provide more detail than the General Plan Diagram.
The General Plan Update calls for a few new zoning districts to align with the new Rumrill Corridor Plan . These new districts include the Mixed -Use Center West, Employment Mixed -Use, and Planned Development Area/Infill Opportunity .
Regulations for these districts will be established as part of a comprehensive zoning update being undertaken after the General Plan is adopted. The use regulations and development standards for existing zoning districts will need to be amended to conform to Plan policies. Dens ity and intensity limits, consistent with the Plan's land use classifications, also should be established. For purposes of evaluating General Plan consistency, the density of proposed projects will be rounded up or down to the nearest whole number, as appropriate.
The City shall bring both the Zoning Ordinance and the Zoning Map into conformance with the General Plan within a
reasonable time. When the General Plan is subsequently
amended, the Zoning Ordinance and Zoning Map also may
need to be amended to maintain consistency with the Plan.
SAN PABLO AVENUE SPECIFIC PLAN
The San Pablo Avenue Specific Plan was adopted in 2011 and provides detailed use, development, and design direction along the San Pablo Avenue corridor as it traverses the City in a North -South direction. The Specific Plan has been very successful in encouraging new development and
intensification of development, particularly with the Circle S area, where the new City Hall is located. The San Pablo Avenue contains detailed implementation policies and will continue to serve as a planning and zoning documen t for this area for the foreseeable future.
23RD STREET SPECIFIC PLAN
The 23rd Street Specific Plan was adopted in 2007 and applies to the 23rd Street corridor from Pine Avenue north to
San Pablo General Plan 2035
10-8
Brookside Drive. This entire corridor is designated as Commercial Mixed Use. The use, development, design and policy guidance provided in the document has become
outdated and the Specific Plan is proposed for sunsetting as part of the 2025 General Plan Update process. The City has updated Specific Plan for 23rd Street in line with future trends.
SUBDIVISION REGULATIONS
No subdivision of land may be approved under California law and the City's subdivision regulations unless its design and proposed improvements are found to be consistent with the General Plan. Dedication of land for park facilities is required for subdivis ions above a certain size, consistent with the policies and standards prescribed by the General Plan. The precise threshold will be established on a case -by-case basis and depends on whether there are neighborhood parks in the vicinity which can serve new residents. The subdivision regulations also can require dedication of land for riparian habitat and reservation of land for fire stations, libraries, bike paths, transit facilities, and other public facilities.
The City's subdivision regulations should be amended to better conform to Plan policies and explicitly require findings of consistency with the General Plan as a condition of
approving for major and minor subdivisions. Reservation requirements for bus turnout or bulb-out facilities and bike and pedestrian facilities should be added to carry out Plan policies.
The subdivision ordinance should require connection between new streets and existing streets, wherever possible, and allow for reduced right -of-way dimensions to maintain
neighborhood character. Consideration of passive s olar energy techniques in street and lot layout and landscaping should be required and the ordinance may require access easements in new subdivisions .
BUILDING AND HOUSING CODES
No building permit may be issued under California law (Gov.
Code Section 65567) unless the proposed development is consistent with the City's open space plan and conforms to the policies of the Open Space and Conservation Element. To provide an administrative mechanism to ensure consistency, it applicants for building and grading permits should secure
Chapter 10: Implementation & Monitoring
10-9
zoning approval or other form of zoning clearance before these permits can be issued.
10.3 Capital Improvements Program
The Capital Improvements Program (CIP) includes a list of public works projects that the City intends to design and construct in coming years. Under California law, the Planning Division has responsibility for reviewing the CIP to determine whether it conforms to the General Plan. Specifically, the Government Code requires the Division to review for
conformity with the General Plan any CIP projects requiring one or more of the following actions:
• Acquisition of land for public purposes;
• Disposition of land;
• Street vacations; and
• Authorization or construction of public buildings or
structures.
The Planning Division has 40 days to comment on such actions, and under state law, these recommendations are advisory only; the City Council may make its own determinations of
consistency.
The Planning Division also has the right to comment on CIPs prepared by San Pablo school districts and utility providers.
These CIPs, and any annual revision proposed to them, are to be forwarded to the Commission at least 60 days prior to adoption for the Commission's review for consistency with the General Plan.
San Pablo General Plan 2035
10-10
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APPENDIX A:
RUMRILL CORRIDOR
PLAN
CITY OF SAN PABLO
Public Review Draft
APRIL 15, 2025
RUMRILL CORRIDOR
PLAN
CITY OF SAN PABLO
Public Review Draft
Prepared by
APRIL 15, 2025
RUMRILL CORRIDOR
PLAN
ACKNOWLEDGEMENTS
CITY COUNCIL MEMBERS
Arturo Cruz, Mayor
Elizabeth Pabon-Alvarado, Vice Mayor
Abel Pineda, Councilmember
Patricia Ponce, Councilmembe
r
Rita Xavier, Councilmember
PLANNING COMMISSION
Johana Gurdian, Chair
Paul Morris, Vice Chair
Jerome Jackson, Planning Commissioner
Jon Owens, Planning Commissioner
Roberta Feliciano, Planning Commissioner
TECHNICAL ADVISORY COMMITTEE
Ada Chan, Metropolitan Transportation Commission
Allan Panganiban, City of San Pablo Public Works
Angela Corona, Lao Family Community Development, Inc.
Armondo Hodge, West County Wastewater District
Aurora Betancourt, City of San Pablo Economic Develop-
ment Corporation
Carissa Lee, AC Transit
Dani Lanis, Bike East Bay
David Rehnstrom, East Bay Municipality Utility District Greg Dwyer, City of San Pablo Community Services
Jeni McGregor, East Bay Municipality Utility District
Jora Atienza Washington, City of San Pablo Community
Services
Joseph Villarreal, Contra Costa Housing Authority
Leah Greenblat, West Contra Costa Transportation Advisory Committee
Luz Gomez, Contra Costa Health Services
Matt Brown, City of San Pablo Public Works
CITY STAFF
Elizabeth “Libby” Tyler, Community Development Director Sandra Castaneda Marquez, Associate Planner
Mel Mackson, Assistant Planner
Griffen Dempsey, Assistant Planner
CONSULTANT TEAM
Dyett & Bhatia Urban and Regional Planners
BAE Urban Economics
Table of Contents
iv
TABLE OF CONTENTS
1 2
3 4
5 Introduction ..................................................................................1 Corridor Profile..............................................................................7 Vision and Planning Framework ................................................12 Goals, Policies, and Actions ......................................................22 Implementation and Monitoring ................................................41 Appendices........................................................................................A-1 PDA Pr ofile.........................................................................................................A-3 Market Conditions and T
rends Report.............................................................A-50 Corridor Plan Alternatives................................................................................A-98 Community Outr
each Report.........................................................................A-108 San Pablo Rumrill Corridor Plan
v
LIST OF MAPS
Map 1: Corridor Location and Boundaries......................................................................3 Map 2: Existing Land Use...............................................................................................9 Map 3: Vacant Parcels and Ownership Patterns............................................................10 Map 4: Structuring Elements.........................................................................................17 Map 5: Corridor Plan Land Use Map............................................................................18 Map 6: Opportunity Sites..............................................................................................21 Map 7: Urban Tree Canopy Cover.................................................................................37 Table 5-1: Implementation.............................................................................................43 Table 5-2: Progress Indicators........................................................................................49 Figure 1: Illustration of Floor Area Ratio (FAR).............................................................16
LIST OF TABLES
LIST OF FIGURES
Table of Contents
vi
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San Pablo Rumrill Corridor Plan
1 1
INTRODUCTION
PURPOSE AND CONTEXT
Rumrill Boulevard is a two-lane arterial corri-
dor that extends north from San Pablo’s south-
western City limit to connect with Broadway
Avenue and San Pablo Avenue. The City has
designated the southern portion of the corridor
between Brookside Drive and Costa Avenue as
a Priority Development Area (PDA), a designa-
tion for areas that are near public transit and
planned for new homes, jobs, and community
amenities. The Rumrill PDA is also identified as
an Employment Focus Area in Plan Bay Area
2050, the regional sustainable growth strategy
that coordinates housing plans, open space
conservation efforts, economic development
strategies, and transportation investments. A
predominantly Hispanic neighborhood, major
existing uses along the corridor include indus-
trial yards, the City’s Rumrill Sports Complex,
Chapter 1 l Introduction
2 a mobile home park, and the Rumrill Garden
Apartments, together with a variety of auto-
related uses, grocery stores, churches, restau-
rants, commercial services, smaller apartment
complexes, and several underused and aban-
doned properties. While a Complete Streets
Study for the corridor was completed in 2015
and complete streets improvements were con-
structed in 2024, the corridor has never been
studied as a whole with a view to establishing
a coherent vision, land use and development
strategy, and plan for revitalization.
With a grant from the Metropolitan
Transportation (MTC) in conjuction with the
Association of Bay Area Governments (ABAG),
the City of San Pablo has undertaken prepa-
ration of the Rumrill Corridor Plan to develop
a shared vision for the Corridor and to identify
a variety of policy tools to guide its evolution.
The Corridor Plan seeks to expand the range of
housing choices available in the Corridor and
to improve environmental conditions and eco-
nomic opportunities. It is designed to guide
revitalization of the corridor with strategies
to integrate a wider variety of housing types,
stimulate economic development and job cre-
ation, enhance recreational and entertainment
options, improve the visual quality of buildings
and streetscapes, and enrich the quality of life
for local residents.
CORRIDOR LOCATION AND
BOUNDARIES
San Pablo is located within the western por -
tion of Contra Costa County, inland from the
eastern shore of San Pablo Bay. It is an enclave
community, largely surrounded by the City of
Richmond and bordered by the unincorporated
communities of North Richmond to the west,
Richmond and unincorporated Rollingwood
in the north, and El Sobrante to the east. The
City of Richmond lies to the south. The Rumrill
PDA (Corridor) runs in a north-south direc -
tion along the southwestern perimeter of San
Pablo, before curving northeastward to con-
nect with Broadway Avenue and San Pablo
Avenue in the central part of the city (Map 1).
The Burlington Northern Santa Fe Railroad
(within the City of Richmond) borders the
Corridor to the west, and the unincorporated
community of North Richmond lies just further
west. The Corridor is one mile long, extending
along Rumrill Boulevard from Costa Avenue
at the City’s southern border with Richmond
north to Brookside Drive. It is located 1.8 miles
west of Interstate 80, which has connections
to Vallejo and Sacramento to the north and
northeast; Richmond, Berkeley, and Oakland
to the south; and on to San Francisco to the
southwest. The Corridor is approximately
three miles northeast of Interstate 580, which
provides connections to Marin and Sonoma
Counties via the Richmond Bridge. It is served
by multiple Alameda-Contra Costa Transit
District (AC Transit) bus routes, connecting the
area to the Richmond Bay Area Rapid Transit
(BART)/Amtrak Station (one mile south of the
Corridor boundary) which provides access to
San Francisco, various cities in the East Bay,
San Jose, and beyond. AC Transit bus routes
also connect the Corridor to the Richmond
Passenger Ferry Terminal (three miles south
of the PDA) with service to San Francisco and
to the Contra Costa College Transit Center (1.3
miles to the northeast). These connections
present opportunities for transit-oriented
development that can help to reduce conges-
tion, improve air quality, increase public health,
and support a more sustainable urban envi-
ronment by locating both housing and jobs in
proximity to transit service.
San Pablo Rumrill Corridor Plan
3 !(T
Jc
City of
San Pablo
Rumrill Blvd
BURLINGTON NORTHERN SANTA FE RAILROAD
UNION P ACIFIC RAILROAD
Rumrill
Corridor
Plan Area
El Cerrito
Del Norte
BART Station
Richmond
BART Station
Costa Ave
Contra
Costa
College
CastroSt
Garrard B
lvd
S23r
d
St
Carlson Blvd
23rd St
San
Pablo
Ave
Richmond Pkwy
Cutting Blvd
Barrett Ave
Canal Blvd
RichmondPkwy
W Cutting Blvd
SanPabloAve
SanPabloDamRd
San P
ab
lo A
ve
22nd St
Market Ave
Brookside Dr
Richmond
Ferry
T erminal
%&n(
City of
Richmond
North
Richmond
City of
Richmond
SOURCE: City of San Pablo, 2024; Contra Costa County GIS, 2024; Dyett & Bhatia, 2024 J:\GISData\581_SanPablo_GP\GIS\Projects\PDA_Rumrill\Rumrill Corridor - Final Maps\Map 1 Corridor Location and Boundaries.mxd Richmond Inn er Har bor
Regional Location
Ferry T erminal
T ransit Center
BART Station
BART Rail
Corridor Plan Area
City of San Pablo
0 50,000 100,00025,000
FEET
Map 1: Corridor Location and Boundaries
Chapter 1 l Introduction
4 WHAT IS A CORRIDOR PLAN?
Relationship to the General Plan
The Rumrill Corridor Plan is a policy document
that outlines a comprehensive approach for
land use, economic development, transpor -
tation, and visual and environmental quality
consistent with the San Pablo General Plan.
As provided for in State law, it is adopted by
resolution as an amendment to the General
Plan, implementing Policy LU-G-11 of the
General Plan Land Use Element by providing
area-specific policy guidance for the Corridor.
The Rumrill Corridor Plan and the General Plan
share a uniform format for land use designa-
tions, terminology, and diagrams; however,
the Corridor Plan provides greater policy-level
detail on issues that particularly affect devel-
opment within the Corridor. The General Plan
addresses the eight required elements defined
in State law (Government Code Section 65302)
on a citywide basis. Accordingly, where condi-
tions in the Corridor related to these required
elements are otherwise adequately addressed
in the General Plan, the Corridor Plan need not
address them.
Uses of the Corridor Plan
The Corridor Plan is a guiding document with
recommended actions to be implemented
after adoption. Implementing actions are
the key to executing the Corridor Plan. These
actions are organized by timeframe and
directly correspond to the strategies listed in
the Corridor Plan. Factors that affect imple -
mentation timing include feasibility, funding,
and level of City control over implementation.
The Corridor Plan also serves as a tool to help
San Pablo City staff, the Planning Commission,
and the City Council make land use and public
investment decisions. As development is pro -
posed within the Corridor, City officials will con-
firm that these proposals are consistent with
the policies and standards in both the Corridor
Plan and the General Plan. Additionally, City
staff from various departments will refer to
the Corridor Plan in developing annual work
plans and priorities for the Citywide Capital
Improvement Program.
For local residents and businesses, the Corridor
Plan provides a clear vision for the future of
the Corridor. It indicates the general types of
uses and activities that are permitted in the
Corridor, the policies the City will use to evalu-
ate development applications, and the invest -
ments and programs the City will undertake to
help implement the Plan’s vision.
San Pablo Rumrill Corridor Plan
5 Introduction. This chapter outlines the
purpose and uses of the Corridor Plan,
describes its relationship to other City
planning documents, and provides an
overview of the Plan.
Corridor Profile. Drawing on the back -
ground reports prepared during the initial
phase of work, this chapter describes the
existing land use and development pat -
terns, population characteristics, and eco-
nomic activities in the Corridor to provide
a profile of key conditions and trends with
implications for the Plan.
Vision and Planning Framework. This
chapter summarizes the planning pro -
cess and the shared vision for the future
of the Rumrill Corridor that has emerged
from the planning process. It also includes
a detailed General Plan Land Use map for
the Corridor and provides descriptions of
the General Plan land use designations
that apply, including specific standards
for the density and intensity of develop -
ment.
Goals, Policies, and Actions. This chapter
contains a framework of goals, policies
and actions that, taken together, describe
a vision for the Corridor and the steps
needed to achieve it.
Implementation and Monitoring. This
chapter summarizes the specific actions
to be taken to carry out the Plan. For each
action, the timing and priority for imple -
mentation is identified together with the
responsible agency and department. It
also identifies a series of indicators that
1 2
3 4
5 PLAN ORGANIZATION AND
STRUCTURE
The Corridor Plan is organized into the follow -
ing chapters:
can be used to track progress toward achiev -
ing the goals of the Plan.
Policy Structure
Chapter 4, “Goals, Policies and Actions” of this
Plan, includes brief background information
to establish the context for the policy direc -
tion it contains. This background discussion is
followed by a listing of the goals, policies, and
actions that will be used by the City to guide
future land use, development, and environ-
mental protection decisions within the Corridor.
Within this structure, Goals describe more
general desired results that the community
seeks to create through the implementation of
the Plan. The Policies and Actions establish the
“who,” “how,” and “when” for carrying out the
“what” and “where” of the Goals. Policies and
implementing actions both support the Goals,
and are described the summary below:
•
A go
al is a statement that describes a
desired future condition or “end” state.
Goals are intended to be broad statements
of community aspirations.
•
A polic
y is a clear and unambiguous state -
ment that guides a specific course of action
for decision-makers that can be taken to
achieve a desired goal. Policies guide City
staff and decision-makers in their review
of land development projects and in deci-
sion-making about other City actions.
•
An implem
enting action is a measure,
procedure, or technique that is intended
to implement one or more policies to help
reach a specified goal. Typically, an action
is a discrete item which is done once
and then completed. For implementing
actions, this Plan lists both the timeframe
and the responsible department/agencies
for implementation.
Chapter 1 l Introduction
6 Milestone Documents
In preparing the Corridor Plan, several reports
were produced that contain background
information and technical analysis. Described
below and included as appendices to this
Plan, these reports do not represent adopted
City policy but provide important background
information that may be useful to consult to
further one’s understanding of the Corridor
and the Corridor Plan.
•
P
DA Profile: This report documents con-
ditions and trends related to population,
housing, employment and commute pat -
terns in the Corridor in order to provide a
demographic and socioeconomic profile.
It also describes existing land use, parks
and recreational facilities, transportation
facilities, public health and environmental
factors, and any hazardous conditions or
natural hazards in the Corridor to help set
the context for Plan development.
•
Mar
ket Conditions and Trends Report:
This report presents an employment and
industry profile for the Corridor, identify -
ing existing industry concentrations, along
with a real estate analysis that assesses the
types of businesses that the City may be
able to attract to the Corridor and the typ -
ical site and real estate requirements for
these businesses.
•
C
orridor Plan Alternatives: This report
presents three distinct alternatives for
future land use and economic develop -
ment along the Rumrill Corridor in order
to highlight future choices and tradeoffs.
The Alternatives were the basis for the
Phase 2 outreach activities described in the
Community Engagement Report and were
designed to spark discussion of concepts
that could potentially be included in Public
Review Draft Corridor Plan.
• C ommunity Engagement Report: This
report summarizes outreach activities and
community feedback that was received
throughout the planning process. It docu-
ments key messages and highlights impli-
cations for the Corridor Plan as well as any
notable differences in responses between
neighborhoods and demographic groups.
San Pablo Rumrill Corridor Plan
7 CORRIDOR PROFILE
The Rumrill Corridor is a vibrant neighborhood
located in the southwest portion of the City
of San Pablo, and is home to an eclectic mix
of homes, businesses, and community attrac -
tions. Rumrill Boulevard and Market Avenue
(which intersects it in the northern part of the
Corridor) are arterial roadways that connect the
area with surrounding communities and posi-
tions Rumrill Boulevard as a gateway into San
Pablo. The Rumrill Corridor is also a recreational
destination that draws residents from around
the city, who come for soccer tournaments and
games at the Rumrill Sports Complex. Drawing
on the background reports prepared during
the initial phase of work, this chapter presents
a profile of the Rumrill Corridor, describing
conditions and trends related to land use and
development, population characteristics, and
jobs and the economy to help provide context
for the Plan.
2 Chapter 2 l Corridor Profile
8 Multifamily apartments located in north of the Corridor Low-rise commercial structures with underutilized
parking surface
LAND USE AND DEVELOPMENT
Existing development along the Rumrill
Corridor features low-slung commercial build-
ings, many involving auto-related uses; a variety
of markets, shops, and restaurants; and small
industrial businesses, together with multifam-
ily apartments, single-family homes, and a large
mobile home park (see Map 2). Commercial
uses tend to front Rumrill Boulevard and are
generally concentrated mid-corridor. Most
existing commercial development was con-
structed prior to 1970 and the typical floor
area ratio (FAR) is less than 0.35, reflecting the
predominance of one-story buildings with a
significant amount of land devoted to surface
parking along the corridor. The age, condition,
and relatively low FAR of existing non-residen-
tial development indicates a variety of oppor -
tunities for redevelopment with new uses to
better serve community needs.
Residential uses occupy almost 45 percent of
the land on the Corridor. The average density
of existing housing is typically between 14 and
24 units per acre, although some newer multi-
family developments along the Corridor have
densities approaching 40 units per acre. Larger
multifamily apartment complexes are located
in the north and south of the Corridor, while
single-family neighborhoods are adjacent and
to the east of the Corridor.
There are relatively few vacant parcels and, in
general, parcel size in the Corridor is small (par-
ticularly on the east side of Rumrill) and own-
ership patterns are fragmented, which poses
challenges for infill development. However,
there are several clusters of adjacent par -
cels under common ownership which offer
greater potential for redevelopment (see Map
3), particularly at the prominent intersection
of Rumrill and Market Avenue. There is also a
cluster of vacant City-owned parcels set back
from Rumrill Boulevard near Sutro Avenue in
the south of the Corridor that could potentially
serve as a catalyst site were the City to pur -
sue redevelopment through sale or a public-
private partnership.
POPULATION CHARACTERISTICS
The Rumrill Corridor has a young and diverse
population of approximately 1,400. Residents
tend to be younger than the citywide aver -
age, with a high proportion of individuals
aged 18-44 and fewer families with children.
The majority of Corridor residents identify as
Hispanic and more than 60 percent of resi-
dents speak Spanish at home. Many residents
face a significant housing burden, with over
40 percent spending more than 30 percent
of their income on housing. This has led to a
higher prevalence of younger, unrelated adults
Rumrill Blvd
Market Ave
Brookside Dr
Costa Ave
Sutter Ave
Pine Ave
Emeric Ave
California Ave
Sanford Ave
Sutro Ave
Chelsey Ave
Post Ave
Folsom Ave
Mission Ave
Merr
Fillmore St
Marelia Ct
Regina Ave
Sanford Ave
19th St
Bush Ave
14th St
Dover Ave
John
Herbert
Davis Park
Happy
Friday
Park
Wildcat Cre ek
UNION P ACIFIC RAILROAD
Single Family Residential
Multi Family Residential
Mobile Homes
Service Station
General Commercial
Mixed Use
General Industrial
Public/Institutional
Church/Religious Facility
Parks/Recreation
Open Space/Natural Areas
Vacant Land
Rumrill Boulevard PDA
City Limits
Railroads
J:\GISData\581_SanPablo_GP\GIS\Projects\PDA_Rumrill\Rumrill Corridor - Final Maps\Map 2 Existing Land Use .mxd
CITY OF SAN PABLO
CITY OF RICHMOND
UNINCORPORATED NORTH RICHMOND
CITY OF RICHMOND
BURLINGTON NORTHERN SANTA FE RAILROAD
City of
Richmond
North
Richmond
City of
San Pablo
Rumrill
Sports
Complex
0 600 1,200300
FEET
Map Date:
3/5/2025
SOURCE: City of San Pablo, 2024; Contra Costa County GIS, 2024; Dyett & Bhatia, 2024 Map 2: Existing Land Use
Rumrill Blvd
Market Ave
Brookside Dr
Costa Ave
Sutter Ave
Pine Ave
Emeric Ave
California Ave
Sanford Ave
Sutro Ave
Chelsey Ave
Post Ave
Folsom Ave
Mission Ave
Merr
Fillmore St
Marelia Ct
Regina Ave
Sanford Ave
19th St
Bush Ave
14th St
Dover Ave
John
Herbert
Davis Park
Wildcat Cre ek
UNION P ACIFIC RAILROAD
SOURCE: City of San Pablo, 2024; Contra Costa County GIS, 2024; Dyett & Bhatia, 2024 J:\GISData\581_SanPablo_GP\GIS\Projects\PDA_Rumrill\Rumrill Corridor - Final Maps\Map 3 Vacant Parcels and Ownership Patterns .mxd 0 600 1,200300
FEET
Map Date:
3/5/2025
CITY OF SAN PABLO
CITY OF RICHMOND
UNINCORPORATED NORTH RICHMOND
CITY OF RICHMOND
BURLINGTON NORTHERN SANTA FE RAILROAD
City of
Richmond
North
Richmond
City of
San Pablo
Rumrill
Sports
Complex
Vacant Parcels
City Owned Vacant Parcels
Privately Owned Underused Parcels
Under Common Ownership
Rumrill Boulevard PDA
City Limits
Railroads
Map 3: Vacant Parcels and Ownership Patterns
San Pablo Rumrill Corridor Plan
11 Other
non-family
Households
sharing accommodations, suggesting the
need for studio apartments, live/work units,
and other housing types that offer affordable
options for young, single people. While afford-
ability remains a key concern, nearly half of the
existing housing units in the Corridor are sub -
sidized, making it important to also promote
market-rate housing to ensure a balanced mix
of options along the Corridor.
Overall, educational attainment is relatively low
along the corridor, with only a third of residents
having completed high school and fewer than
7 percent having attended college. Residents
are primarily employed outside of the Corridor
in sectors such as healthcare and social assis-
tance, retail trade, and hospitality and food ser-
vices. Jobs in these sectors can involve irreg-
Existing food trucks in the Rumrill Corridor
Age Demographics in
Rumrill Corridor vs. City of San Pablo
Hispanic Population in
Rumrill Corridor vs. City of San Pablo
82.57%
61.04%
Household Structure
in Rumrill Corridor vs. City of San Pablo
12.7%
18.6%
25%
45%
21%
9%
28.2%
40.5%
20.1%
29.7%
46.8%
3.4%
26.4%
21.9%
10%
41.8%
Under 18
years
Family
Households
w/ Children
65 years
and above
Householder
living alone
18 to 44
years
Family
Households
w/o Children
45 to 64
years
Source: U.S. Census, 2020
ular work hours, making commute by transit
less viable. This is reflected in travel data which
show that most residents commute to work
alone by car.
EMPLOYMENT AND ECONOMY
The Rumrill Corridor has an active econ-
omy comprised primarily of small and inde -
pendently owned businesses in the follow -
ing sectors: restaurant and food services;
personal care and business services; auto
repair and maintenance; and manufactur -
ing and wholesale. A full 85 percent of busi-
nesses in the Corridor are locally-owned. These
locally-owned businesses employ approxi-
mately 220 people, primarily from outside San
Pablo.
With relatively small parcel sizes and only
indirect access to the regional highway and
interstate network, larger scale industrial and
regional commercial uses are generally not
viable in the Corridor. However, these same
attributes make the Corridor an ‘inside loca-
tion’, which is attractive to smaller scale man-
ufacturing and repair-oriented businesses that
seek more affordable space and do not require
ready access to freeways and highways. Such
businesses may include food and beverage
manufacturers, apparel and accessories man-
ufacturers, creative “maker” businesses, and
some limited advanced manufacturing, as well
as automotive and electronic repair shops.
Chapter 3 l Vision and Planning Framework
12 3
VISION AND PLANNING
FRAMEWORK
PLANNING PROCESS AND
COMMUNITY ENGAGEMENT
In 2022, the City of San Pablo initiated prepa-
ration of the Rumrill Corridor Plan to develop
a shared vision for the future of the Rumrill
Boulevard Corridor neighborhood that will
guide revitalization and promote new hous-
ing development together with improved
environmental conditions and economic
opportunities. This effort was funded by a
generous Priority Development Area (PDA)
grant from the Metropolitan Transportation
Commission (MTC) and Association of Bay Area
Governments (ABAG). Public engagement was
3 San Pablo Rumrill Corridor Plan
13 integral to the development of the Corridor
Plan, and a multifaceted, bilingual (English-
Spanish) community engagement strategy
was implemented to proactively engage local
residents and businesses in the process. A
dedicated project page was established on the
City’s website to serve as a one-stop portal for
information on the Corridor Plan, and oppor -
tunities to participate in the process were
promoted with fliers distributed at commu-
nity events, social media posts, door hangers
left at homes and business along the corridor,
email blasts, and mentions in the weekly City
Manager’s newsletter and in the City’s quar -
terly El Portal newsletter. Opportunities for
involvement included pop-up event outreach,
a citywide survey, property/business owner
forums, a block party and community meet -
ing, and “reel polls” published on the City’s
social media channels. Additionally, a Technical
Advisory Committee (TAC) composed of City
staff from various departments and represen-
tatives of partner agencies met three times
in the process to advise on technical aspects
of the Corridor Plan, including transportation,
utilities, public services, and economic devel-
opment.
At each phase of the work, a variety of different
methods was used to provide opportunities
for discussion and meaningful input and build
community ownership of the Corridor Plan:
•
Phase I: Issues an
d Opportunities
Identification (Spring-Summer 2022). This
phase involved outreach to identify and
understand stakeholder priorities and con-
cerns as well as preparation of a Corridor
Profile to document conditions and trends
related to land use and development, trans-
portation, environmental quality, and parks
and public services in the Corridor. A city -
wide survey garnered over 260 responses,
and an initial TAC meeting was held to
review the Corridor Profile and to identify
related issues and opportunities to address
in the Plan.
Promotional Materials: Social media posts
Promotional Outreach Materials: Door hangers Citywide Online Survey You’re invited to a
Block Party
for the Rumrill Neighborhood
Date: Saturday, August 24
Time: 11 AM - 2 PM
Location: Los Compadres
1742 Rumrill Boulevard San Pablo
LUNCH AND KIDS ACTIVITY PROVIDED
Join us for a
block party and
community event/exclam.case
Help plan for the
future of the Rumrill
neighborhood.
Lunch and kids activities
provided.
WHERE:
Los Compadres
1742 Rumrill Blvd
San Pablo, CA
WHEN:
Saturday,
August 24th
11am-2pm
Mel Mackson, Assistant Planner
City of San Pablo
Tel: 510.215.3052
Email: [email protected]
For more information:
https:/ /qrco.de/bfHjBs
Scan here to let us know you’re
coming, or visit
Chapter 3 l Vision and Planning Framework
14 • Phase 2: Al ternatives Exploration
(Summer-Fall 2024). This phase saw devel-
opment of three distinct alternatives for
land use and economic development that
outlined different options for the future of
the corridor, responding to the issues and
opportunities identified in Phase 1. The TAC
met a second time to help refine the alter -
natives for presentation to the commu-
nity. More than 385 community members
shared their input during this phase, partic-
ipating in property/business owner forums,
attending a block party and community
meeting on the corridor, and responding to
interactive video “reel polls” on Instagram.
•
Phase
3: Draft Plan Preparation (Winter
2024-Spring 2025). Based on the pre -
ferred land use plan and key strategies that
emerged from Phase 2, a draft plan was
prepared and released for public review.
The TAC met a final time to review and
comment on the Draft Plan prior to pub -
lic release. Environmental review was also
completed during this phase.
•
Phase
4: Plan Finalization (Spring-
Summer 2025). The Corridor Plan will be
presented to the Planning Commission and
City Council for adoption at public hearings
in May and June of 2025. It will be adopted
as a component of the City’s General Plan
and associated land use map changes will
also be approved at that time. Associated
changes to the City’s zoning map and
development regulations will follow.
Rumrill Block Party and Community Meeting
Bilingual Interactive Instagram Reel Polls
San Pablo Rumrill Corridor Plan
15 VISION
The shared vision for the future that emerged from the planning process is for Rumrill Boulevard to be a highly livable corridor and a destination for “food and fun” that attracts San Pablo residents as well as visitors from around the region. It will be a vibrant neighborhood, with a variety of housing choices for people of all ages and incomes, and a place where successful businesses that provide quality jobs for corridor residents and opportunities for local entrepre- neurs can locate and thrive.
It will also be a place where people come together for soccer games at the Rumrill Sports Complex, to enjoy a meal at a popular local restaurant or food truck, or to meet with friends in a new public plaza at the prominent intersection of Market and Rumrill or at other nearby open spaces. Attractive architecture, branded signage, and public art reflecting local heritage and culture will all contribute to a memorable sense of place.
Chapter 3 l Vision and Planning Framework
16 Figure 1: Illustration of Floor Area Ratio (FAR)
ulate building placement or form; it defines
the total amount of development allowed on
a given lot. In the designations below, FAR rep-
resents an expectation of the overall intensity of
future development. The maximums assigned
to the land use designations below do not con-
stitute entitlements, nor are property owners
or developers guaranteed that an individual
project, when tested against the Plan’s poli-
cies, will be able or permitted to achieve these
maximums.
Mixed Use Designations
Mixed Use Center West. Mixed use develop -
ment at this prominent western gateway into
San Pablo will include multiunit residential
development with a permitted density of 30-60
units per gross acre and/or activity-generating
commercial uses with a maximum FAR of 2.5.
The maximum permitted density and FAR may
be calculated over the total area of adjoining
parcels if they are proposed for redevelopment
together as part of a single project. A mix of uses
is encouraged but not required on individual
sites. Typical building height is expected to be
four to five stories with mixed use in either a ver-
CORRIDOR STRUCTURE
The Corridor Plan will be implemented incre -
mentally over 10-15 years, guided by a land use
framework to help make the vision a reality.
That framework seeks to promote the follow -
ing structuring elements, illustrated on Map 4:
•
A
vibrant mixed use hub with apartments,
shops, and neighborhood services to create
a focal point at the prominent intersection
of Rumrill and Market;
•
Residential
nodes at the north and south
ends of the corridor, located within easy
walking distance of shops, transit, and
neighborhood services;
•
C
ommercial and employment mixed-
uses focused mid-corridor that provide
economic opportunities for employment
and entrepreneurship together with com-
patible residential uses; and
•
P
rominent gateway design features such
as distinctive people-oriented architecture,
branded signage, landscaping, trees, and
public art at entry points into the commu-
nity that help to build a sense of place.
LAND USE FRAMEWORK
The Corridor Plan Land Use Map (Map 5) illus-
trates the long-term vision for redevelopment
and revitalization in the Corridor, translating
the structuring elements with land use desig-
nations that describe the character envisioned
for each district. Each designation includes
standards for density or intensity of use.
Residential densities are expressed in terms of
dwelling units per acre. Building intensities for
non-residential uses are expressed in terms of
floor area ratio (FAR), which is the ratio of gross
building area (excluding surface parking areas)
to net lot area (see Figure 1). FAR does not reg-
San Pablo Rumrill Corridor Plan
17 Commercial/Employment
Mixed Use
Employment Mixed Use
Commercial Mixed Use
City Limits
Railroads Commercial
Residential
Commercial
Parks/Recreation
Mixed Use Hub
Gateways
Rumrill Blvd
Market Ave
Brookside Dr
Sutter Ave
Pine Ave
Emeric Ave
California Ave
Sanford Ave
Sutro Ave
Chesley Ave
Post Ave
Folsom Ave
Mission Ave
Fillmore St
Marelia Ct
Regina Ave
Sanford Ave
Bush Ave
Dover Ave
Map 4: Structuring Elements
Chapter 3 l Vision and Planning Framework
18 Rumrill Blvd
Market Ave
Brookside Dr
Costa Ave
Sutter Ave
Pine Ave
Emeric Ave
California Ave
Sanford Ave
Sutro Ave
Chesley Ave
Post Ave
Folsom Ave
Mission Ave
Merr
Fillmore St
Marelia Ct
Regina Ave
Sanford Ave
19th St
Bush Ave
14th St
Dover Ave
John
Herbert
Davis Park
Happy
Friday
Park
Wildcat Cre ek
UNION P ACIFIC RAILROAD
SOURCE: City of San Pablo, 2024; Contra Costa County GIS, 2024; Dyett & Bhatia, 2024 Mixed Use Center West
Commercial Mixed Use
Employment Mixed Use
Neighborhood Commercial
High Density Residential
Medium Density Residential
Planned Development/Infill Opportunity
Parks/Recreation
Corridor Plan Area
City Limits
Railroads
J:\GISData\581_SanPablo_GP\GIS\Projects\PDA_Rumrill\Rumrill Corridor - Final Maps\Map 5 Corridor Plan Land Use Map.mxd
CITY OF SAN PABLO
CITY OF RICHMOND
UNINCORPORATED NORTH RICHMOND
CITY OF RICHMOND
BURLINGTON NORTHERN SANTA FE RAILROAD
City of
Richmond
North
Richmond
City of
San Pablo
Rumrill
Sports
Complex
0 600 1,200300
FEET
Map 5: Corridor Plan Land Use Map
San Pablo Rumrill Corridor Plan
19 tical or horizontal format. Desired commercial
uses include a grocery store, restaurants, and
community-serving shops and services. Other
potential commercial uses include a food truck
park with communal seating, a production
facility with a tasting room or retail sales point,
and/or a commercial kitchen with on-site sales
and dining. Residential developments that are
“affordable by design” are encouraged, such as
co-housing, micro-apartments, and modular
construction. Bonus density and other regu-
latory incentives will be available for projects
that provide public plazas, on-site recreational
amenities, public art, and high-quality design
features that build the visual presence of the
Rumrill/Market gateway.
Employment Mixed Use. This designation
seeks to foster a range of production, distribu-
tion, and repair-oriented businesses, including
food production and distribution; small-scale
auto and appliance repair; apparel, electron-
ics, and furniture manufacturing; and a host of
other creative demonstration, showcase, and
assembly uses. The intent is to provide oppor -
tunities for smaller scale commercial, office,
industrial, and hybrid uses seeking affordable
spaces that do not require direct access to the
regional transportation network and to provide
jobs with good wages that do not require a
college degree for local residents. On-site live/
work housing is also encouraged within this
designation. On sites over 0.25 acres, multiunit
housing is permitted where adequate buffer -
ing and noise mitigation is provided. Maximum
permitted FAR for non-residential uses is 0.6.
Commercial Mixed Use. This designation is
intended to foster a mix of commercial, office,
service retail, public and residential uses. A
mix of uses is encouraged but not required on
individual sites. Typical height is expected to
be two to three stories. The maximum permit-
ted FAR is 1.5. Residential uses are allowed only
when the commercial FAR is 0.50 or greater.
Permitted density is 20 to 40 units per gross
acre.
Residential Designations
High Density Residential. This designation
is intended primarily for higher-density mul-
tifamily apartments, townhomes, and condo -
miniums. Developments in this category are
typically two to four stories high and located
along major roads. Common area open space
and shared amenities are required within a
development. The minimum lot size is 10,000
square feet. Permitted residential density for
this designation ranges from 25 to 60 units
per gross acre.
Medium Density Residential. This designation
provides for a mix of housing types and may
accommodate small-lot single-family, attached
single-family or townhomes, duplexes, tri-
plexes, fourplexes, apartment buildings, or con-
dominiums. Accessory Dwelling Units are also
permitted in all residential districts. Permitted
residential density for this designation ranges
13 to 24 units per gross acre.
Chapter 3 l Vision and Planning Framework
20 Other Designations
Planned Development/Infill Opportunity.
This designation is intended to promote high
density residential and/or mixed-use develop -
ment on a cluster of adjacent City-owned sites.
Permitted residential density is up to 60 units
per net acre prior to any density bonus and
an affordable housing component is required,
consistent with Gov. Code, §§ 54220-54234.
Residential development should include a mix
of unit types, including studios, one-bedroom
units, micro-units and other smaller unit types
suitable for singles and students as well as
larger units for families. Live/work housing that
provides opportunities for compatible home-
based businesses is encouraged. The site may
be developed with residential uses alone; how-
ever, complementary non-residential uses
such as business incubator space, commercial
recreational uses, or space for workforce devel-
opment and training activities are also desired.
Neighborhood Commercial. This designation
provides for smaller-scale commercial, office,
and service uses that primarily provide con-
venience, personal services, and social services
such as retail and specialty shops, eating and
drinking establishments, and commercial rec-
reation that are convenient to those living along
and nearby the corridor. It is intended to foster
a pedestrian atmosphere along public streets.
Residential uses are discouraged, unless they
are incidental to the commercial use or part of
a small-scale mixed use. The maximum per -
mitted FAR is 1.0. On smaller parcels, additional
FAR may be permitted to achieve the desired
vision for the area.
Parks/Recreation. This designation is intended
for improved and unimproved park facilities,
including neighborhood, community, and
regional parks as well as recreational facilities
that provide visual open space and serve the
outdoor recreational needs of the community.
No FAR is assumed.
DEVELOPMENT POTENTIAL
With relatively few vacant parcels along the
corridor, but with great revitalization/inten-
sification potential, the vision for the Rumrill
Corridor will be realized primarily through infill
development and expansion on underused
properties. Underused properties may be char-
acterized by the value of the land being worth
more than the buildings and structures on it,
giving the owner an incentive to redevelop
with new uses that command higher rents or
sale prices. For example, a commercial site with
vacancies and large surface parking lots could
be considered underused and therefore rede -
veloped with other uses to serve community
needs, such as housing that in turn would pro-
vide more customers for the other stores and
restaurants in the area. Within the Corridor,
sites with the most potential to accommodate
new development over the next 10-15 years are
shown as opportunity areas in Map 6. Overall,
buildout of the Corridor Plan is projected to
result in approximately 410 new housing units
and 370 new jobs by 2035.
San Pablo Rumrill Corridor Plan
21 Rumrill Blvd
Market Ave
Brookside Dr
Costa Ave
Sutter Ave
Pine Ave
Emeric Ave
California Ave
Sanford Ave
Sutro Ave
Chesley Ave
Post Ave
Folsom Ave
Mission Ave
Merr
Fillmore St
Marelia Ct
Regina Ave
Sanford Ave
19th St
Bush Ave
14th St
Dover Ave
John
Herbert
Davis Park
Wildcat Cre ek
UNION P ACIFIC RAILROAD
SOURCE: City of San Pablo, 2021; Contra Costa County GIS, 2021; Dyett & Bhatia, 2021 Vacant
Underused
Rumrill Boulevard PDA
City Limits
Railroads
J:\GISData\581_SanPablo_GP\GIS\Projects\PDA_Rumrill\Rumrill Corridor - Final Maps\Map 6 Opportunity Sites.mxd
CITY OF SAN PABLO
CITY OF RICHMOND
UNINCORPORATED NORTH RICHMOND
CITY OF RICHMOND
BURLINGTON NORTHERN SANTA FE RAILROAD
City of
Richmond
North
Richmond
City of
San Pablo
Rumrill
Sports
Complex
0 600 1,200300
FEET
Map 6: Opportunity Sites
Chapter 4 l Goals, Policies, and Actions
22 5
GOALS, POLICIES, AND
ACTIONS
This chapter outlines the specific goals, pol-
icies, and actions the City will undertake
to achieve the shared vision for the Rumrill
Corridor that emerged from the process. These
goals, policies, and actions are intended to
provide a framework that will guide planning
and development along the Corridor, integrate
new housing and employment opportunities,
and strengthen sense of place and livability.
The chapter is organized around eleven goals
that correspond to key community priorities
identified during the process, addressing land
use and urban design; economic development;
transportation and parking; and quality of life.
4 San Pablo Rumrill Corridor Plan
23 LAND USE AND URBAN DESIGN
GOAL-1
COHESIVE LAND USE
FRAMEWORK.
Foster a vibrant mix of uses
along the Corridor and a clear
development pattern defined
by a mixed use core, residential
nodes, and opportunities.
for retail, employment, and
recreation.
POLICIES
RUM-1.1 P romote the redevelopment of
underused sites along the Corridor
to provide for community needs,
capitalize on market opportunities,
and foster prosperity.
RUM-1.2
I
ntegrate new housing and
employment-oriented uses along
the Corridor to address affordabil -
ity, increase economic opportunity,
and support neighborhood vitality,
while taking action to prevent the
displacement of existing residents
and businesses.
RUM-1.3 F oster distinctive gateways at
key entry points into San Pablo
to heighten sense of place and
strengthen neighborhood pride.
GOAL-2
DISTINCTIVE GATEWAY.
Create an attractive, memorable
gateway into San Pablo at the
prominent intersection of Market
and Rumrill.
POLICIES
RUM-2.1 F ocus the highest intensity of
development at the intersection of
Market and Rumrill to create a dis -
tinctive mixed-use node and a focal
point for the community that sig -
nals entry into San Pablo.
RUM-2.2
F
oster a vibrant mix of residential
and activity-generating commer -
cial uses at this location to activate
it throughout the day and evening.
RUM-2.3
R
equire a minimum of 30 units per
net acre for any project with a resi -
dential component at the intersec-
tion of Market and Rumrill.
RUM-2.4 B
uild the visual presence of the
gateway intersection with taller
building heights, a public plaza,
trees, public art/murals, and dis -
tinctive branding and signage. The
public plaza should be designed for
flexible use and activated with pro-
gramming and amenities.
RUM-2.5
O
rient new buildings to the street
or public plaza, minimize setbacks
along street frontages, and locate
surface parking behind buildings
to promote a walkable, pedestri-
an-friendly environment.
Chapter 4 l Goals, Policies, and Actions
24 RUMRILL/ MARKET GATEWAY INTERSECTION
The intersection of Rumrill and Market represents a unique opportunity within the Plan Area. Parcel size at this prominent crossroads is among the largest on the Corridor, and there are clusters of adjacent parcels under common ownership, which present an important opportunity for redevel- opment that can help catalyze the vision.
The intersection is served by three bus routes, positioning it for transit-oriented development, and it is also a major entry point into San Pablo from the Richmond Parkway, via North Richmond. The Plan focuses the highest density and intensity of development at this location to capital- ize on this opportunity and foster creation a mixed use node, with a vibrant mix of residential and activity-generating commercial uses. Land use and development standards are structured to incentivize the provision of ame- nities such as public plazas, on-site recreational amenities, public art, and high-quality design features that contribute to an attractive, memorable gateway into San Pablo.
Illustration of potential 2035 conditions
2025 Conditions
Locate buildings near street
frontage with parking in the
rear to enhance walkability
Build visual presence of
Gateway with taller
buildings and distinctive
architecture
Incorporate public
art and branding to
enhance sense of
place
Incentivize public
plazas and on-site
amenities to activate
Gateway
Design public
spaces for
flexible use
Enhance pedestrian
safety with high
visibility crosswalks
San Pablo Rumrill Corridor Plan
25 RUM-2.6 E mphasize human-scaled design
within larger developments and
employ measures such as articu -
lated massing, awnings, and land -
scape elements to break down the
scale of buildings.
RUM-2.7
E
nsure that commercial uses are
designed to incorporate ground
floor transparency and pedestrian
activity.
RUM-2.8
P
rovide common, resident-serving
uses such as lobbies, fitness cen -
ters, and common areas in visible,
ground-floor locations within mul -
tifamily developments and mixed-
use buildings to help activate the
street level.
RUM-2.9 W ork with AC Transit to incorporate
a transit stop at the intersection
with passenger waiting amenities
such as a bus shelter, seating, light-
ing, trash cans, and schedule infor-
mation.
RUM-2.10
P
rioritize the use of funds from the
City’s Public Art Fund for a public
art project at the Rumrill/Market
gateway intersection
ACTIONS
RUM-2.a U pdate the zoning code to:
•
E
stablish development standards
for high intensity mixed use
development within the Mixed-
Use Center West designation;
•
C
larify that the minimum required
density for residential develop -
ment in the Mixed-Use Center
West designation is 30 units per
net acre; and
•
P
rovide a tiered program of
bonus density and FAR offered
in exchange for amenities such
as public plazas, on-site recre -
ational amenities, public art, and
high-quality design features.
RUM-2.b
W
ork with property owners and
interested developers to retain a
grocery store at this intersection
and attract other essential services,
such as medical clinics, banks,
and dry cleaners to provide for the
needs of area residents and ensure
the vitality of the node over time.
Chapter 4 l Goals, Policies, and Actions
26 HOUSING FOR ALL.
Promote a variety of housing
types along the corridor and
prevent displacement of existing
residents.
GOAL-3
POLICIES
RUM-3.1 P romote a range of residential den-
sities and unit sizes throughout
the Corridor to encourage a mix
of housing types in varying price
ranges and rental rates.
RUM-3.2
E
ncourage a mix of for-sale and
rental housing units along the
Corridor, including alternative own-
ership models such as fee-simple
ownership, common interest devel-
opments, housing cooperatives, or
community land trusts.
RUM-3.3 F acilitate the integration of new
housing to meet community needs
in the Rumrill Corridor by offer -
ing incentives that may include (1)
processing incentives such as fast
track permitting, expedited design
review, and streamlined environ -
mental review when possible ; (2)
regulatory incentives such as den -
sity bonuses, parcel map waivers,
or modification of development
standards; and (3) fee reductions,
waivers, or deferrals and other
financial incentives for projects that
create low- and moderate-income
housing.
RUM-3.4
E
ncourage the use of innovative
and cost-effective building mate -
rials and construction methods
(such as modular construction), as
well as site design practices as well
as energy and water conservation
measures to conserve resources
and reduce the cost of residential
development.
RUM-3.5
P
romote the development of live/
work units and compatible multi
unit housing in commercial and
employment mixed use areas along
the Corridor.
RUM-3.6
S
creen and buffer nonresidential
projects to protect adjacent resi -
dential property and other sensitive
land uses when necessary to miti -
gate noise, glare and other adverse
effects on adjacent uses.
RUM-2.c E stablish a unified gateway design
palette and guidelines that address
streetscape design, signage, light -
ing, and building massing and set-
backs to heighten sense of place
both at the Rumrill/Market gateway
and the southern gateway.
San Pablo Rumrill Corridor Plan
27 RUM-3.7 R equire building placement vari -
ations, roofline variations, archi -
tectural projections, and other
embellishments in residential
and mixed-use development to
enhance the visual quality and
design appeal along the Corridor.
RUM-3.9 C ontinue to engage the commu -
nity in developing new and refining
existing affordable housing and
anti-displacement strategies.
ACTIONS
RUM-3.a P ursue development of high den -
sity residential and/or mixed-use
development on the cluster of City-
owned parcels in the south of the
Corridor, near Sutro and Fillmore.
Development of these properties
should be used to help catalyze
positive change in the Corridor
and may be accomplished through
sale, ground lease, or public-private
partnership.
RUM-3.b
C
onsistent with Housing Element
Program 1-C, establish objective
standards for live/work units so that
they can be developed without the
need for a conditional use permit.
RUM-3.c
S
tudy the feasibility of modifying
the SPLASH program to support
the creation of live/work housing
and/or office condominiums on
the Corridor.
RUM-3.d
W
ork with Richmond LAND
(Local Action in Neighborhood
Development), Contra Costa’s first
Community Land Trust (CLT), to
explore opportunities to increase
the supply of permanently afford -
able housing options on the
Corridor. The effort should consider
opportunities to consolidate par -
cels and/or acquire and rehabilitate
RUM-3.8 P reserve and expand affordable
housing in the Corridor with the fol-
lowing actions:
•
T
hrough the Residential Health &
Safety Program, continue to pro-
actively inspect rental properties
and promote rehabilitation of
substandard units;
•
P
artner with Contra Costa County
and non-profit groups to provide
funds to renovate older buildings
in exchange for rent restrictions;
•
P
rovide regulatory, process, or
fee-based incentives to encour -
age the integration of deed-re -
stricted affordable units within
housing developments; and
•
D
iscourage the conversion of
older rental apartments to condo-
miniums.
Chapter 4 l Goals, Policies, and Actions
28 RUM-3.h C onsider creation of a forum for
ongoing dialogue on local housing
issues and identification of strat -
egies to address them. Include
representatives of public agencies,
affordable and for-profit housing
developers, housing advocacy
groups, and other community
organizations.
RUM-3.i
M
onitor indicators such as change
in share of low-income households,
average rent and sales price, sup -
ply of affordable units, and evic -
tions and foreclosures within the
Corridor. Use this data to assess risk
and target programs and resources
accordingly.
ENGAGING SPACES.
Activate the public realm and
build visual character along the
Corridor.
existing multiunit rental housing.
The City should consider contrib -
uting land, funds, and technical
expertise to support the effort.
RUM-3.e
C
onsistent with Housing Element
Program 1-H, reach out to faith-
based organizations that own prop-
erty on the Corridor to gauge their
interest in developing affordable
housing and identify actions the
City can take to support efforts.
RUM-3.f Re view development standards
in the zoning code to ensure they
adequately provide transitions for
higher density mixed use areas
to adjacent low density neighbor -
hoods, incorporating modifications
as warranted.
RUM-3.g
I
mplement Housing Element
Program 3-F to minimize and
resolve conflicts and disputes
between landlords and tenants and
promote tenant rights.
GOAL-4
POLICIES
RUM-4.1 U sing development regulations
and design standards, facilitate
development and streetscape
improvements that help transform
the visual and physical character
of the Corridor to create a positive
impact on the public realm.
San Pablo Rumrill Corridor Plan
29 RUM-4.2 R ely on strong landscape treat -
ments, setbacks, sign controls, and,
where feasible, underground util -
ities and street improvements to
enhance design harmony and pre-
vent visual chaos where businesses
are competing for attention.
RUM-4.3
A
t key intersections, require that
buildings be oriented to actively
engage and enhance the public
realm through techniques such as
building orientation, build-to and
setback lines, façade articulation,
ground-floor transparency, and
rear-of-lot location of parking.
RUM-4.4
I
ntegrate public art/murals, distinc-
tive branding, and signage to help
build sense of place at the south -
ern gateway ( Map 4 ) and apply
gateway design guidelines to new
development at this location (see
Action RUM-2.c).
RUM-4.7 P ursue funding and programs to
underground utilities and overhead
wires where feasible.
ACTIONS
RUM-4.a W ork with property and business
owners to promote the improve -
ment and maintenance of facades
of commercial buildings.
RUM-4.b
I
nvestigate the feasibility of estab -
lishing a business improvement
district, facade improvement pro -
gram, or other mechanism to facil-
itate the renovation and rehabilita-
tion of older commercial properties
along the Corridor.
RUM-4.c
E
stablish a master signage pro -
gram with guidelines for the design,
placement, and specifications for
commercial signage to ensure con-
sistency in visual appearance and
help build a visual brand for the
Corridor.
A Master Signage Program is a coordinated plan for
signs placed on commercial properties that ensures
consistent visual themes and adequate signage for
tenants.
RUM-4.5 P rimary building entries, either
individual or shared, should face a
public street and be prominent and
easy to identify.
RUM-4.6
L
everage City investments in infra-
structure, public realm improve -
ments, and amenities to attract pri-
vate sector investments and new
development to the Corridor.
16-square
foot awning
face sign
4-square
foot valance
5-square
foot blade
sign
Chapter 4 l Goals, Policies, and Actions
30 THRIVING LOCAL BUSINESSES.
Cultivate a vibrant mix of
home-grown businesses and
entrepreneurs while attracting
new businesses to diversify and
grow the local economy.
ECONOMIC DEVELOPMENT
GOAL-5
POLICIES
RUM-5.1 F ocus business attraction and
retention efforts to build on exist -
ing industry concentrations in the
Corridor, including businesses in
the following sectors: food produc-
tion and sales; small-scale manu -
facturing; wholesale trade; repair
and maintenance; and personal
and businesses services.
RUM-5.2 C ontinue to partner with the San
Pablo Economic Development
Corporation (EDC) to offer technical
assistance and funding to support
the establishment and growth of
businesses in target sectors.
RUM-5.3
L
everage the relatively affordable
rents and sales prices available
along the Corridor to attract new
businesses.
RUM-5.4
P
reserve and encourage neighbor-
hood stores that enable shoppers
to walk or bike for everyday needs,
provide access to healthy foods, and
promote a sense of community.
RUM-5.5 E nsure that zoning and other City
regulations support a variety of
home-based businesses along the
Corridor.
RUM-5.6
E
ncourage the integration of com-
mercial tenant spaces designed to
accommodate small businesses
within new developments.
RUM-5.7
U
ndertake and encourage place -
making and community develop -
ment projects that enhance the
Corridor as a desirable place to live,
work, and visit.
RUM-4.d D evelop a branding and public
art program for the Corridor that
identifies a menu of tactical public
realm improvements to foster an
identifiable image for the area. The
program should include elements
such as murals, banners, utility box
painting, string lighting, and blank
facade wall treatments as well as
potential funding sources.
San Pablo Rumrill Corridor Plan
31 QUALITY OF JOBS, EDUCATION,
AND TRAINING.
Support workforce development
initiatives and connect residents
with local employment
opportunities.
ACTIONS
RUM-5.a C onduct outreach to local busi -
nesses and assess the viabil -
ity of establishing a Business
Improvement District in the Corridor
to help coordinate and fund activi -
ties such as facade improvements,
beautification efforts, coordinated
marketing campaigns, and special
events.
RUM-5.b
R
eview City business license and
sign permit requirements to iden -
tify revisions that can simplify pro -
cedures and reduce costs for busi -
nesses.
RUM-5.c W
ork to encourage that a range
of occupiable sizes is provided
in new developments, including
smaller commercial tenant spaces
designed to accomodate small,
local businesses.
GOAL-6
POLICIES
RUM-6.1 P roactively partner with the San
Pablo EDC on strategies to develop
a local labor force with skills to
meet the needs of the Corridor’s
businesses.
RUM-6.2 C ontinue to support efforts to
enhance primary and secondary
education, increase high school
graduation rates, and improve
workforce-readiness for youth.
RUM-6.3
W
ork with the San Pablo EDC to
develop and implement programs
that help local businesses hire and
train local trainees.
ACTIONS
RUM-6.a C ollaborate with the San Pablo EDC
and Corridor businesses to mount a
“hire local campaign” that encour -
ages businesses along the Corridor
to hire workers who live in or near
the area.
Image Source: San Pablo Economic Development
Corporation
Chapter 4 l Goals, Policies, and Actions
32 DESTINATION FOR FOOD AND
FUN.
Establish the Rumrill Corridor as
a destination for recreation and
entertainment within San Pablo.
GOAL-7
POLICIES
RUM-7.1 W ork with the San Pablo EDC and
local businesses to raise the profile
of the Corridor as a recreational and
entertainment destination, through
marketing campaigns and other
promotional activities.
RUM-7.2
A
ttract complementary new food
production and sales businesses to
the Corridor and support the vital -
ity of existing restaurants, bodegas,
and food trucks.
RUM-7.3
R
einforce the Rumrill Sports
Complex as the City’s premier des-
tination for recreational events and
explore opportunities to partner
with local businesses and commu-
nity groups to host festivals and
events in addition to sports and
recreational programming.