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growth rate in the early 2000’s, but growth has since leveled off, resulting in less than 1 percent average annual growth over the last 10 years.
Table 2-1 compares population growth of the City and Sutter County between 2000 and 2020.
Due to a population decline in the unincorporated County from 2000 through 2010, Yuba City’s population growth exceeded the county-wide total population growth between 2000 and 2020, when Yuba City’s population grew by 33,700 residents while the county’s population grew by only 21,820. This is likely attributed, at least in part, to annexations.
Table 2-1: Population Growth 2000-2020; Yuba City and Sutter County 2010 2020 Annual Growth Rate
2010-2020 2040 Annual Growth Rate
2020-2040
Yuba City 64,925 70,458 0.82% 80,753 0.14%
Sutter County1 94,737 100,750 0.62% 118,023 0.17%
1 Includes county-wide population in both incorporated and unincorporated areas.
Source: Department of Finance (DOF) Table E-5 for 2010 and 2020; Table E-4 for 2000.
PROJECTED POPULATION
The Sacramento Area Council of Governments (SACOG) prepares growth estimates for the region; the latest growth forecast uses base year 2016 and projects out to 2040. SACOG projects that incorporated Yuba City’s population will grow by 0.8 percent per year to 80,753 in the year 2040. Using the average annual growth that occurred over the ten-year period from 2010 to 2020, which is slightly higher than SACOG’s forecast, the total population in the incorporated City would grow to 82,980 by 2040. The average of these two growth rates results in a 2040 population of 82,690, which would represent a total increase of 17 percent over the existing (2020) population. 2 SACOG growth estimates for the City’s SOI project the population will grow by 690 between 2020 and 2040, to 7,310 people. Together, these estimates project a 2040 planning area population of 90,000. Population growth projections are summarized in Table 2-
2. Table 2-2: Population Growth 2020-2040; Yuba City and SOI 2020 2040 Percent Change
2020-2040
Yuba City 70,460 82,690 17%
Yuba City + SOI 77,080 90,000 17%
Source: Department of Finance (DOF) Table E-5, 2020; SACOG, 2021. 2 SACOG 2016 MTP/SCS Modeling Projections, 2016-2040.
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2.2 REGIONAL ECONOMIC CONTEXT
LOCAL ECONOMY CHARACTERISTICS
Yuba City’s early economic growth was related to providing services within a large agricultural area. In addition to agriculture, which served as the traditional employment base for the region, employment cores were developed in downtown Yuba City and at the intersection of Highway 20 and Highway 99. With substantial growth occurring in the past 20 years, Yuba City is now the economic hub of the surrounding agricultural area, providing services for both city and regional residents. It is also part of the Sacramento metropolitan area economy and is influenced by trends in this larger area.
Several key components of the local economy include the following:
x Yuba City’s Town Center has emerged as a successful employment center specializing in health care and related services in the redevelopment zone near downtown. x While Yuba City is a net exporter of workers—many of which are drawn to the job-rich Sacramento Metropolitan area—Yuba City is the economic, agricultural, and social center for Yuba and Sutter counties.
x Annexations have added opportunities for additional commercial and industrial development within the City and residential development both in the City and the surrounding unincorporated area has expanded the base for retailing within the City. x Recent publicity as a ‘best-performing small city’ in national print media has raised Yuba City’s profile. The ranking was determined by using data on technology trends, wage growth, and job creation.
x Yuba City’s employment mix is similar to that of the region at large, except the City has a stronger presence of ‘other services’, such as personal care services when compared to the region. Medical, retail, education and hospitality services all have a strong presence in the City and county-wide, although the retail and education industry have both seen a decline in employment since 2017. Table 2-3 presents an overview of jobs by sector in the City and Sutter County as of 2018 (the latest year reported by the U.S. Census Bureau as of 2021). x Attractive wage scales and competitive land costs, when compared with other locations within the Sacramento metropolitan area, and highway access to Sacramento and other California markets are strong selling points; the challenge for many industries is to find the right land and building space and supporting infrastructure.
EXISTING EMPLOYMENT
Employment is the principal indicator of community economic conditions. Table 2-3 presents existing employment in Yuba City in comparison to Sutter County for 2020 and Table 2-4 summarizes the distribution of jobs by sector. Employment as of January 2020 was estimated at 28,400 jobs, within the City, which represents about 69 percent of the total employed population in the County. This data does not reflect any impacts from the COVID-19 pandemic. The pandemic has impacted businesses and caused job loss in several industries, including retail and services.
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Table 2-3: Employment in Yuba City and Sutter County 2021 Yuba City Top Jobs by Occupation Number %
Office & Administrative Support 2,328 13.5
Executive Managers, Administrators 1,569 9.08
Protective Services 1,722 10.05
Education, Training, Library 1,583 9.24
Sales 1,200 7.01
Source: Yuba-Sutter Economic Development Corporation: Community Profiles 2021
PROJECTED EMPLOYMENT
Table 2-4 presents SACOG’s employment forecast for Yuba City and Sutter County. According to SACOG projections, Yuba City is expected to add approximately 6,816 jobs by the General Plan Horizon year of 2040 which represents a 25.6 percent increase for the City, and approximately 71 percent of the total increase for the entire County.
Local jobs are anticipated to increase at a faster rate than the population, resulting in an improved jobs-housing ratio. The 2016 jobs-housing ratio was 1.1:1 and, according to projections, the 2040 jobs-housing ratio will be 1.2:1. Typically, the jobs-housing ratio is considered balanced between the ratios 1.3:1 and 1.7:1.
These forecasts do not incorporate impacts from the COVID-19 pandemic, which has affected businesses and jobs and may impact actual employment growth in Yuba City and the County.
Table 2-4: Projected Employment Growth 2016-2040; Yuba City and Sutter County 2016 2040 Percent Increase
2016-2040
Annual Growth Rate
2016-2040
Yuba City 26,590 33,410 25.6% 1.0%
Yuba City + SOI 27,920 35,780 26.3% 1.4%
Sutter County1 34,410 43,960 27.8% 1.0%
1 Includes population in incorporated areas.
Source: SACOG Detail Modeling Projections for 2040; February 2020.
2.3 EMPLOYMENT GROWTH PROSPECTS
The City is intent on promoting economic growth, as well as focusing economic development efforts in areas that will contribute most to making the City a vital, vibrant community.
Employment growth in Yuba City will allow the City’s economic base to expand in tandem with its population. Much of the City’s future economic base is already present in the form of developed land and occupied non-residential space, although there will be opportunities for new jobs in the Highway 20 corridor and other locations.
New commercial and retail centers are planned at accessible locations to serve both city residents and shoppers from other communities. Regionally-oriented commercial areas are planned along Route 20, Route 99 and major arterials, and community commercial uses will be developed within neighborhoods and communities.
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Even though sufficient land is designated for employment uses, land use planning needs to be supplemented by other tools – City policies, targeted recruitment, incentives, or subsidies – to encourage a specific type of use. In addition, the City’s population growth will help fuel expected employment growth by creating demand for additional retail, service (business, professional, medical, and other), and public sector uses. Diversity in employment will expand job opportunities for local residents and help to stabilize the local economy.
2.4 DEFINING AN ECONOMIC DEVELOPMENT STRATEGY
A coordinated economic development strategy is essential for supporting Yuba City’s community development objectives, such as increasing the industrial base, continuing to support Downtown revitalization, enhancing community character, and supporting commercial development along corridors and in neighborhoods. Such a strategy should include a managed program of fiscal development, strategic public improvements, and a balanced approach to land use. It could build on and reinforce initiatives that have already been undertaken by the Yuba-Sutter Economic Development Corporation and by the City Manager’s office, and capitalize on technical assistance and grant funding provided by State and federal agencies. This element envisions the following central roles for the City:
x Promoting agriculturally related processing, agricultural equipment manufacturing, sales and services, “niche” manufacturing, health care facilities and professional offices. The County’s agricultural heritage can be a cornerstone of its economic development efforts, but new initiatives to attract agricultural industry clusters and related manufacturing and services—which include food and beverage processing, agricultural and farm implements, small-scale specialty companies, and business services—are projected to benefit from significant growth in the Sacramento metropolitan area through the planning period, and would certainly provide excellent employment- and revenue-generating opportunities for Yuba City if the City positioned itself properly to capture a portion of this growth. Yuba City also may benefit from support activities and services for Beale Air Force Base (AFB). Lastly, Yuba City may be successful in attracting “call center” operations because of the community’s large labor pool and competitive land costs.
x Promoting development that results in fiscal benefits to the City. The relative benefit or burden of various land uses on the City’s General Fund is important in considering how future development in Yuba City should be prioritized. Promoting the construction of revenuegenerating uses (such as commercial and industrial land use that generate sales tax monies), as well as ensuring that each new residential development pays its fair share of the costs to provide public services, provides the City with a more diverse fiscal base. x Regional scale retail and consumer service uses are encouraged on the Route 99 and Route 20 corridors where pass-by traffic, good visibility, and image will enhance sales potential.
Yuba City has a significant advantage with these state highways and should protect the supply of available land in commercial locations that make the most sense for retail and service sector uses.
x Enhancing cultural amenities, such as a convention center, performing arts center, or cultural center, in downtown Yuba City or elsewhere. This recommendation offers three distinct, yet important advantages. First, if such a facility was located downtown, this would generate pedestrian traffic and support retail opportunities into the evening hours. Complementary uses, such as restaurants, clubs, and coffee shops, would also tend to locate near where
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crowds gather. Second, such facilities provide a strong image of culture, sophistication, and community pride. Such an image is important if Yuba City is to evolve from bedroom community for Sacramento workers to important sub-regional job center, particularly in the attraction of R&D and office complexes, specialty agricultural industries and support services for Beale AFB. Third, such facilities can also result in strong growth in the visitor services sector by catering to those who come to enjoy recreational and entertainment opportunities related to the facilities.
x Attracting a new job training, vocational school, or community college campus. Establishment of a higher educational facility within Yuba City would improve the skills and educational attainment of the local labor force. Additionally, it would provide local employers with convenient opportunities for continuing education and/or job training. The University of Phoenix has a satellite campus at Beale Air Force Base and they or another similar institution may be interested in another facility in Yuba City itself.
Yuba City’s economic development strategy shifts focus from traditional approaches—such as provision of tax breaks and other subsidies—to investing in the skills of the workforce, infrastructure for agricultural processing and technological innovation, and a superb quality of life. The City also might consider working with Yuba-Sutter Economic Development Corporation on lending programs for qualified businesses and also protecting opportunities related by Beale AFB by working with the County, Yuba-Sutter Economic Development Corporation and the community’s elected representatives to ensure that Beale is not affected by the next round of military base closures, which could affect up to 20 percent of the bases in California.
Yuba City also has been active in the Sister City Program, with one sister city in Japan. This program was initiated by President Eisenhower in 1956; today, more than 900 U.S. cities are paired with over 1,300 cities in 92 countries. Sister cities provide opportunities for international business contacts, increased awareness of other cultures, student exchanges, and development of mutually beneficial relations in economic development, education, the arts, culture, medicine, government, and sports. Cross-cultural charitable efforts also have been initiated by sister cities, and many American cities have several partners. Given the strong Sikh community in Yuba City, it may be appropriate to initiate study of inviting one or more additional sister cities in the Punjab region of India (e.g., Jalandhar, Patiala, Chandigarh, and Ludhiana).
2.5 GOALS, POLICIES, AND IMPLEMENTATION
A key initiative of this General Plan is to maintain a balanced land use program that provides opportunities for commercial and industrial development, dispersed throughout the community and at appropriate locations within the urban area served by adequate infrastructure.
The General Plan Land Use Diagram, described in Chapter 3, recognizes that industrial users have a broad range of needs, and provides for more land than may be needed over the planning period to allow for a choice of sites. The specific policies that follow focus on those actions the City can take that will enable the land use and development concepts of this General Plan to be realized.
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GOALS, POLICIES & IMPLEMENTATION
Goal EC 1-1. Foster a climate in which business can prosper and actively promote economic development opportunities and knowledge of Yuba City in the region, state, and nation.
Policy EC 1-1: Assist local merchants and business organizations interested in forming business improvement districts to promote a definable identity for specific commercial areas through coordinated signage, landscaping, and entry/identity symbols.
Policy EC 1-2: Promote, consistent with the Traffic and Circulation Element, public transportation opportunities, to serve business areas and transport workers.
Policy EC 1-3: Encourage non-motorized means of transportation to shopping, recreation, and business areas to help reduce vehicle miles traveled.
Policy EC 1-4: Explore financing plans for existing businesses seeking to expand in Yuba City for whom payment of fees "upfront" may represent a major financial burden.
Six- or twelve-month financing programs could be considered.
Policy EC 1-5: Periodically survey the business community for evaluation of City services and improvement suggestions.
Policy EC 1-6: Work with regional economic development organizations to foster the economic health of the area and dedicate funding to joint marketing of the City’s economic development objectives, including preparation of newsletters, press releases, program summaries, mailing lists, client testimonials, economic data, and articles in various industry journals.
Policy EC 1-7: Explore creating an additional Sister City relationship with one or more communities in India.
Policy EC 1-8: Work closely with the County and Yuba-Sutter Economic Development Corporation in advocating support for Beale Air Force Base and continue to support base operations.
Policy EC 1-9: Continue to identify, pursue and capture state, federal and other grants for economic development.
Goal EC 2-1. Maintain a positive, small-business climate, and strengthen the City's tax base by encouraging environmentally sensitive development with tax generation potential.
Policy EC 2-1: The City will support programs, such as "Yuba City Marketplace," to connect local business needs with local products and services and encourage all businesses and residents in Yuba City to make purchases in the community whenever possible to support local firms.
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Impl. EC-1. Investigate providing incentives to attract and encourage environmentally desirable businesses and business activities, including possibly reduced fees for outstanding environmental conservation efforts.
Goal EC 3-1. Build long-term partnerships between the City and businesses, business organizations, and the educational, arts and environmental communities.
Policy EC 3-1: Establish bi-annual priorities between capital projects and economic development projects within the context of the City's Capital Improvement Program (CIP); emphasize in the CIP Economic Development and Revitalization Programs to be coordinated with the Redevelopment Agency's programs.
Impl. EC-2. Work to assure adequate revenue sources to finance City capital and program initiatives that will enhance economic development prospects.
Impl. EC-3. Strive to assure that ongoing budgets provide for adequate maintenance of the City’s capital facilities, and establish fees commensurate with services rendered (e.g. application processing fees, planning, building and safety and engineering) to recover costs of these services.
Goal EC 4-1. Promote economic development activities that link residents with businesses in the City, such as job training and job development, and facilitate a desired jobs/housing balance.
Policy EC 4-1: The City shall work with the State Employment Development Department, the California Training and Education center, Yuba Community College and higher education institutions to establish practical job training and vocational education programs on campuses within Yuba City that are geared to specific industries and occupational needs.
Policy EC 4-2: The City shall work with the school districts to develop internship, mentoring and workplace learning programs for Yuba City high school students.
Goal EC 5-1. Encourage and promote agricultural processing, agricultural-related technology and opportunities, and cooperative distribution and marketing of agricultural products, “back office” uses, and specialty manufacturing.
Policy EC 5-1: Continue to support the City’s Downtown Farmer's Market by helping sponsors in marketing and related promotional activities.
Goal EC 6-1. Enhance aspects of the community that help economic development and draw residents to Yuba City, including small-town ambiance, educational, cultural, environmental, recreational resources, and affordable housing.
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Policy EC 6-1: Support a coordinated approach to working with key industries for the purposes of targeted marketing (on a case-by-case basis) to existing firms to be retained and/or expanded and new firms to be sought. Identify underrepresented industries that may be attracted to Yuba City and actively try to recruit them.
x Identify target sites and solicit cooperation of property-owner; x Identify necessary on- and off-site infrastructure improvements; x Identify target industries (and possibly specific firms); x Prepare marketing materials, in coordination with Yuba-Sutter Economic Development Corporation and the Chamber of Commerce;
x Conduct outreach through mailings, personal contact, trade shows; and x Coordinate with permit processing.
Policy EC 6-2: Promote cultural amenities and facilitate special events in the community that will draw visitors to the community.
Policy EC 6-3: Work with local hotels and motels, the Chamber of Commerce, Yuba-Sutter Economic Development Corporation, and recreational organizations and businesses to promote a Yuba City-Feather River "weekend package" of emphasizing the community's historical and community assets, and access to recreational facilities and recreational areas.
Policy EC 6-4: Explore the feasibility of establishing a convention center or performing arts center, either Downtown or in another accessible location.
Policy EC 6-5: Maintain a generous supply of "ready to go" commercial and industrial land by annexing and zoning sites prior to receipt of development applications.
Policy EC 6-6: Develop guidelines for adaptive reuse of commercial/industrial buildings and "incubator" development projects, including "live/work" studios.
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3 Land Use Element
This element of the General Plan constitutes the framework for land use planning in Yuba City to the year 2045. To provide a context, the evolution of the City is described and existing land use in the City is summarized. The objectives of the land use framework, the General Plan Diagram, the land use classification system, and the buildout of this Plan to the year 2045 are then presented. The heart of the chapter is on guiding and implementing policies, which are intended to set the land use framework into motion and shape development for the next 20 years. Further guidance on physical form is
provided in Chapter 4: Community
Design.
This chapter focuses on both
development in outlying,
developed areas and on infill sites
within the existing City, and builds
upon Downtown Yuba City as the
historical and future “heart” of the
City.
Government Code § 65302(a) lists
several items that should be
addressed in the Land Use Element,
to the extent they are relevant to
the Planning Area. The following
were found to not apply to the
General Plan
x Timber Production. As applicable, a general plan needs to provide for a land use designation that provides for timber production for those parcels of real property zoned for timberland production pursuant to the California Timberland Productivity Act of 1982.
There are no lands meeting this requirement in Yuba City. x Military Readiness Activities. General plans must address the impact of "new growth on military readiness activities carried out on military bases, installations, and operating and training areas, when proposing zoning ordinances or designating land uses covered by the general plan for land, or other territory adjacent to military facilities, or underlying designated military aviation routes and airspace." No military facilities are adjacent to Yuba City 's Planning Area, with the closest installation being Beale Air Force Base (AFB), located approximately 13 miles east of Yuba City. The AFB is home to the 9th Reconnaissance Wing of the United States Air Force, which works to train and equip aircraft fleets for the U.S. Air Force. While Beale AFB operates flight paths that do cross over Yuba City, the city is outside of Beale AFB's imaginary surface area, or safety zone, meaning that flights crossing the city are 500 feet above ground level and therefore do not present any potential conflicts with densities planned for development in Yuba City. A Land Use Compatibility Plan for the AFB was adopted on May 17, 2011. As required by the State of California, the AFB identified a Lively Street Market at night in walkable Downtown
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military influence area (MIA) around the installation that designated areas where military operations may impact local communities, and conversely, where local activities may affect the military's ability to carry out its mission. Yuba City's Planning Area does not lie within this MIA.
Additionally, Government Code section § 65302(a) requires the Land Use Element to address certain information regarding flooding hazards. The discussion on flooding hazards is more fully described in the Noise and Safety Element, which is incorporated into the Land Use Element by reference. That chapter also identifies those areas covered by the General Plan that are subject to flooding as identified by a flood plain map prepared by the Federal Emergency Agency (FEMA) or the Department of Water Resources. The Land Use Diagram establishes land uses arranged to reduce vulnerability to flooding. The Yuba River on the eastern border influences the City’s susceptibility to flooding. While most development circumvents floodplains, some low- and low/medium-density residential uses sit within the 500-year floodplain, as do some areas with commercial and industrial designations. Most land within a designated floodplain is designated as open space, which minimizes impacts to the built environment.
3.1 BACKGROUND AND CONTEXT
HISTORICAL LAND USE DEVELOPMENT
Much of Yuba City’s land use pattern can be traced to its evolution as a primary service center within a large agricultural area focused on downtown Yuba City and the intersection of Highway 20 (Colusa Avenue) and Highway 99 as employment cores. Much of the residential development in the city is low-density, single-family housing and much of the commercial development is retail-related. Chapter 1 includes a brief historical description of the growth of Yuba City. 2020 LAND USE PATTERN
Lands within the SOI for this General Plan, which encompass the entire planning area, are described in Chapter 1, and include 12,680 acres. 4,890 acres are located in unincorporated Sutter County. Table 3-1 shows the distribution of land uses in the incorporated City versus the unincorporated UGB and Chart 3-1 illustrates the breakdown of existing land uses within the entire SOI.
Land Use
3-3
Table 3-1: 2023 Land Use in the Sphere of Influence
Land Use Incorporated Unincorporated Total SOI
Acreage Percentage Acreage Percentage Acreage Percentage Residential
Low Density Residential 4,050 52 2,850 58 6,900 54
Medium Density Residential 410 5 450 9 860 7
High Density Residential 400 5 130 3 530 4
Commercial
Neighborhood Commercial 50 1 10 0 60 0
Community Commercial 230 3 100 2 330 3
Regional Commercial 390 5 90 2 480 4
Office & Office Park 280 4 60 1 340 3
Industrial
Business, Technology & Light Industry 580 8 70 1 650 5
Manufacturing, Processing & Warehousing 380 5 40 1 420 3 Agricultural
Agricultural/Rural 10 0 -- -- 10 0
Community
Public & Semi-Public 390 5 340 7 730 6
Parks, Recreation & Open Space 470 6 730 15 1,200 9
Vacant
Vacant 180 2 20 1 210 2
Total 7,820 100 4,890 100 12,720 100
Source: City of Yuba City, 2020.
Chart 3-1: Existing Land Use in the Sphere of Influence
Source: City of Yuba GIS Data, 2020
5% 3%
54%
3%
4%
7%
3%
9%
6%
4%
Agricultural/Rural
Business, Technology & Light Industry
Community Commercial
Low Density Residential
Manufacturing, Processing & Warehousing
Medium/High Density Residential
Medium/Low Density Residential
Neighborhood Commercial
Office & Office Park
Parks, Recreation & Open Space
Public & Semi-Public
Regional Commercial
Vacant
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3.2 GENERAL PLAN DIAGRAM AND LAND USE CLASSIFICATIONS
LAND USE FRAMEWORK
Land Use Diagram
The land use framework of the General Plan is illustrated in the Land Use Diagram, Figure 3-1.
The diagram is a graphic representation of the themes and policies in the plan. The Land Use Diagram designates the proposed general location, distribution, and extent of land uses through buildout, which is expected later than the plan’s horizon year of 2040. As required by State law, land use classifications, shown as color/graphic patterns, letter designations, or labels on the Land Use Diagram, specify a range for housing density and building intensity for each type of designated land use. These density/intensity standards allow circulation and public facility needs to be determined.
The Diagram is to be used and interpreted only in conjunction with the text and other figures contained in the General Plan. The legend of the General Plan Diagram includes the land use classifications described below, which represent an adopted part of the General Plan. The General Plan is not parcel-specific and uses on sites less than one acre in size are generally not depicted on the Diagram.
The Land Use Diagram is the framework of this General Plan document and is designed to reflect, through the arrangements of land use, the planning objectives and key initiatives presented in Chapter 1. An overview of how the Diagram relates to these initiatives is as follows:
x Clearly Defined Urban Edges. As depicted on the Land Use Diagram, all areas, with some exceptions, that are beyond the Sphere of influence roughly defined by Pease, Township, Bogue Roads, and the Feather River, are identified as “Agricultural/Rural.” x Economic Development & Jobs. Over 1,000 acres of land is planned for uses that provide jobs. Areas designated “Office & Office Park”, “Business, Technology, and Light Industry”, and “Manufacturing, Processing, and Warehousing” accommodate uses that will provide employment opportunities for existing and future residents. x A Range of Commercial & Retail Opportunities. The General Plan provides for the full range of commercial and retail uses needed for the future population and business community, consistent with the Economic Development Strategy described in Chapter 2.
Regionally-oriented establishments are placed on major roadway corridors; community- and neighborhood-oriented uses are placed within planned communities and neighborhoods. x Large Parks. Two new, large City parks are depicted on the General Plan Diagram. LowMedium and Medium-High residential uses are often situated adjacent to these parks, which provide a valuable amenity to nearby residents as well as the overall City population. A further discussion of these parks is presented in Chapter 6 of the General Plan. x A Network of Open Space. All Parks and Open Space uses are linked by a system of parkways, bikeways, and roadways. A further discussion of parks is presented in Chapter 6 of the General Plan.
x A Complete Roadway System. The land uses presented on the diagram are structured around the proposed roadway network, and the two components are interactive and interrelated. The character and design of roadways is presented in Chapter 4: Community Design. The types, location, capacity, and use of these roadways is presented in Chapter 5:
Transportation.
Land Use
3-5
Figure 3-1: Land Use Diagram
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Integrated Neighborhoods & Neighborhood Centers. The General Plan Diagram depicts a network of neighborhoods. Neighborhoods are defined as areas including a mix of land uses that interrelate and serve one another. Neighborhoods work as part of an overall system of the City, are internally accessible by non-motorized means, include community facilities such as parks and schools, and have a central focal point. The arrangements of land uses on the Diagram show how these neighborhoods are related to each other and to neighborhood center and shopping areas.
x Enhanced Community Character & Aesthetics. Although Community Character is described in full detail in Chapter 4: Community Design, the arrangement of land uses on the General Plan Diagram create a framework within which quality community design is possible.
x A Mix of Housing Types. Three types of residential density ranges are depicted on the Diagram. These will accommodate a full range of housing types and prices to provide housing choice.
x Adequate, Flexible School Sites. School sites depicted on the General Plan Diagram are recommended by the school districts; they relate well to adjacent uses, such as neighborhood focal areas and park sites. A further discussion of schools is presented in Chapter 6 of the General Plan.
Table 3-2: Density and Floor Area Ratios By Land Use Designation Land Use Typical Zone District Units
Per Acre
Assumed for
Buildout
Population
Per Acre
Floor Area
Ratio1
Residential
Low Density Residential R-1, One Family
Residence 2 - 8 4.25 24
Medium Density Residential R-2, Two Family
Residence 6 -- 14 9 42
High Density Residential R-3, Multi-Family
Residence 12 -- 36 24 108
Commercial
Neighborhood Commercial
C-1, Neighborhood
Convenience
Commercial
12 -- 36 24 108 0.5
Community Commercial C-2, Community
Commercial 12 -- 36 108 0.5
Regional Commercial C-3, General
Commercial 0.25-0.5
Office & Office Park C-2, Community
Commercial 12 -- 36 108 0.3-1.0
Industrial
Business, Technology & Light
Industry M-1, Light Industrial N/A 0.25-0.75
Manufacturing, Processing &
Warehousing
C-M, Heavy
Commercial/
Light Industrial
N/A 0.25-1.0
Land Use
3-7
Land Use Typical Zone District Units
Per Acre
Assumed for
Buildout
Population
Per Acre
Floor Area
Ratio1
Agricultural
Agricultural/RuralAH, Agricultural Holding N/A
Community
Public & Semi-Public PF, Public Facilities N/A 0.15-1.0 Parks, Recreation & Open Space PF, Public Facilities N/A 0.15-1.0 1 Excludes residential areas
DENSITY/INTENSITY STANDARDS
The General Plan establishes density/intensity standards for each land use classification. In the residential designations, residential density is expressed as housing units per gross acre.
For non-residential uses, a maximum permitted ratio of gross floor area to net site area (FAR) is specified. FAR is a broad measure of building bulk that controls both visual prominence and traffic generation and is calculated inclusive of area devoted to parking and landscaping. It can be clearly translated to a limit on building bulk in the Zoning Ordinance and is independent of the use occupying the building. No averaging is permitted such that the maximum FAR would be exceeded on any individual site. The Zoning Ordinance can provide specific exceptions to the FAR limitations for uses with low employment densities. In addition to density/intensity standards, some land use classifications also stipulate allowable building types, such as singlefamily residential.
The density/intensity standards do not imply that development projects will be approved at the maximum density or intensity specified for each use. Zoning regulations consistent with General Plan requirements and/or site conditions may reduce development potential within the stated ranges.
LAND USE CLASSIFICATIONS
Total acreages for each Land Use Designation are presented in Table 3-3. The categories are as follows:
Residential
Low Density Residential (Single Family). This designation applies to residential development of single-family homes, usually detached units. Most of the planned land has this designation. In addition to single-family houses, this designation also provides for parks, day care, civic and institutional uses, such as churches and places for religious assembly appropriate in a residential environment.
Medium Density Residential (Traditional Neighborhoods with Mix of Housing Types). This density range provides for a mix of single-family housing, with duplexes, single-family, town homes with Accessory Dwelling Units (ADUs), attached single family homes, mobile home parks, parks, civic and institutional uses appropriate for a residential environment. Existing single-family homes on smaller lots that exist in Yuba City are examples of the low end of this density range; existing duplex development is an example of the middle of the density range.
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High Density Residential. This designation will accommodate attached homes, two- to fourplexes, apartment buildings, parks, civic and institutional uses appropriate for a residential environment. Developments with apartment buildings - such as those in small, highly landscaped apartment complexes - are at the higher end of the density range. Multi-Family Residence District (R-3) are intended to implement this High-Density Residential designation.
Commercial/Office/Industrial
Neighborhood Commercial. This designation applies to small shopping centers, small retail plazas, and village centers where mixed use development is envisioned. Mixed use development could include residential development, such as apartments, and are permitted on both the ground level and upper floors at up-to 50 percent of the land use.
Community Commercial. This designation applies to shopping centers (typically anchored by a supermarket), retail plazas, etc. The Feather Down shopping center on Stabler Lane is an example of this scale of development. Retail shopping areas could contain a wide variety of businesses, including retail stores, eating, and drinking establishments, as well as medical or professional offices in a retail-type setting. Mixed use development could include residential development as up-to 50 percent of the land use on both the ground level and upper floors. Site sizes are typically 15-20 acres (although this size is not a minimum requirement), depending on uses.
Regional Commercial. This classification is used for shopping centers typically anchored by retail outlets with a regional draw, including “big box” retail establishments, department stores, and regional shopping malls. Commercial development along Route 20, including Sam’s Club, Home Depot, and the Yuba City Mall are examples of this type of development. Sites are typically 25 to 50 acres (although this size is not a minimum requirement). This category also includes autoand visitor-oriented commercial uses such as hotels, motels, service stations, restaurants, etc. and sites for automotive sales and services and other commercial uses not described in other categories.
Office & Office Park. This category includes development containing professional and medical offices, including neighborhood, community, and downtown offices as well as office development in a low-intensity, campus-like setting. Neighborhood & community office sites could include a mix of uses, such as small-scale support services. Office & Office Park development could include residential development as up to 50 percent of the land use on both the ground level and upper floors.
Business, Technology, and Light Industry. This classification provides for freestanding sites and campus/complex development accommodating flexible uses of space. Uses include research and development activities, light industrial uses, office uses, high-tech uses, and small-scale distribution uses. For build-out calculations, it is assumed that one job exists for every 750 square feet of net building area.
Manufacturing, Processing, and Warehousing. This category includes manufacturing and industrial processing, general service, warehouse and distribution uses, agricultural product processing and warehousing, large equipment & supply and sales. For build-out calculations, it is assumed that one job exists for every 750 square feet of net building area.
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Public & Open Space
Public & Semipublic. This designation includes schools, government offices, corporation yards, hospitals, city, and public facilities.
Parks, Recreation & Open Space. This classification is for improved and unimproved park facilities, including neighborhood, community, and regional parks; golf courses; and private recreational facilities.
Greenway/Bikeway/Pedestrian Link. This classification covers those areas provided as part of a larger use, in between uses, or along transportation routes that serve to connect parks, recreation, and open space into a unified network of facilities.
Agricultural/Rural. This classification refers to a range of agricultural, rural and open space uses, including field and row crops, orchards, and agricultural support services. Residential units do exist, typically as a secondary use. The category applies to rural areas outside the sphere of influence; it is intended to be consistent with the Sutter County General Plan and the City’s policy of maintaining rural and agricultural land as open space beyond the SOI.
3.3 EQUITABLE AND RESILIENT COMMUNITIES
HISTORIC CONTEXT
The State of California has stated that, historically, low-income residents, communities of color, tribal nations, and immigrant communities have disproportionately experienced environmental burdens and related health problems. This inequity has resulted from many factors, including inappropriate zoning and incomplete land use planning, which have led to development patterns that concentrate pollution emissions and environmental hazards near communities that lack political capital. As certain disadvantaged communities (DACs) continue to face significant barriers to their overall health, livelihood, and sustainability, State law now requires that general plans address environmental justice, as specified by Senate Bill (SB) 1000. Therefore, policies and actions are incorporated throughout this General Plan, as appropriate, to reduce health risks and increase resiliency of DACs in Yuba City.
DISADVANTAGED COMMUNITIES
Figure 3-2 shows the single, local disadvantaged community identified in Yuba City, referred to hereinafter as the Franklin Avenue DAC, located in the southeast area of the City and bounded by Franklin Avenue to the north; the City’s Sphere of influence to the east; Lincoln Road and Garden Highway (within the Bunce Road/Clark Avenue limits) to the south, Bunce Road, and Clark Avenue to the west. This area was mapped using the California Communities Environmental Health Screening Tool 3.0 (CalEnviroScreen) developed by the State Office of Environmental Health Hazard Assessment on behalf of the California Environmental Protection Agency. CalEnviroScreen measures pollution and population characteristics using 20 indicators such as air and drinking water quality, waste sites, toxic emissions, asthma rates, and poverty. It applies a formula to each Census tract in the state to generate a rating of cumulative impacts on each area. Census tracts in Yuba City range from one percent to 90 percent. A 90 percent ranking
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Figure 3-2: Disadvantaged Communities
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indicates that the Census tract has a density of environmental burdens that is higher than 90 percent of other Census tracts in the state. The Franklin Avenue DAC is exposed to higher rates of pollution from the following: lead in housing, toxic release from cleanups, impaired water bodies, and solid waste.
As required by SB 1000, this General Plan includes goals, policies, and objectives prioritizing improvements and programs to address the needs of DACs, particularly as they pertain to the following: civic engagement, food access, safe and sanitary housing, physical activity, pollution exposure, public facilities, and unique and compound health risks.
DISADVANTAGED UNINCORPORATED COMMUNITIES
Through SB 244, State law requires general plans identify disadvantaged unincorporated communities (DUCs), which are communities with an annual median household income that is less than 80 percent of the statewide annual median household income and located in an unincorporated area. In incorporated jurisdictions, the General Plan must address the needs of DUCs outside of the City limit but within the sphere of influence (SOI). Because they are located outside of the City limit, these areas often lack adequate infrastructure to sustain public health and safety. Therefore, the law requires that cities analyze infrastructure and fire service needs and deficiencies and assess potential funding mechanisms for expansions of services and facilities. In 2021, the City identified and analyzed DUCs in its SOI. The analysis concluded that there is one DUC in Yuba City’s SOI with wastewater service deficiencies. The DUC is located east of State Route 99 – bound by properties bordering Kathleen Drive to the north, properties bordering Karen Drive and South Barrett Road to the east, and Lincoln Road to the south.
3.4 NUTRITION AND FOOD DESERTS
Nutrition influences the incidence of obesity, diabetes, and a variety of other diseases, as well as school achievement and quality of life generally. General plans can affect the eating habitats of a community by ensuring that all parts of the city are served by healthy retail food sources and promoting programs that support healthy eating.
ACCESS TO HEALTHY FOOD IN YUBA CITY
Healthy food is one of the best tools to combat obesity and chronic disease. In Yuba City, land west of Highway 99 and land south of Bogue Road is classified by the United States Department of Agriculture (USDA) as a “food desert,” or a place with low access to a supermarket and therefore low access to healthy, fresh food. Barriers to fresh, affordable food choices can cause nutritional inequality and impair individual and overall community health. Food deserts can be hazardous to health, as they lead to serious public health issues such as obesity and diabetes.
The City of Yuba City seeks to ensure that all parts of the City are served by healthy retail food sources to sustain both physical and mental health. Fortunately, Yuba City can build on existing networks to bolster access to fresh, affordable food with farmers markets, community gardens, food banks, nutrition education, and other resources.
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3.5 GENERAL PLAN GROWTH PROJECTION
This section describes the implications of General Plan buildout in terms of future new population, housing units, and jobs. More than enough land is provided by this General Plan to accommodate anticipated housing and job needs in Yuba City through 2040.
Table 3-3 shows the buildout acreage of undeveloped lands in the General Plan Diagram. A total of 7,200 gross acres would be developed within the SOI, including infill sites. Most areas that are planned for new development are residential in use, totaling about 4,655 acres.
Table 3-3: Land Use Acreages at Plan Buildout
Land Use Acres Percent of Total
Residential Land 4,655 65%
Single Family Low Density 3,801 53%
Single Family Low/Medium Density 619 9%
Medium/High Density Residential 235 3%
Commercial Land 640 9%
Neighborhood Commercial 40 1%
Community Commercial 123 2%
Regional Commercial 241 3%
Office & Office Park 236 3%
Industrial Land 521 7%
Business, Technology, and Light Industry 433 6%
Manufacturing, Processing, and Warehousing 88 1%
Community Land 1384 19%
Public & Semipublic 248 3%
Parks, Recreation & Open Space 1,136 16%
Total Uses 7,200 100%
* Acreages include vacant and infill lands within the SOI, and exclude developed lands, as of 2023 Population Growth and Housing
The Yuba City SOI, including the City of Yuba City and surrounding unincorporated areas, contained approximately 77,080 people in 2020 according to the California Department of Finance and SACOG. As described in greater detail in Chapter 2, the Growth and Economic Development Element, the total SOI population is projected to grow to 90,000 by 2040 and the number of housing units in the planning area is projected to grow to 28,940 units. This represents an increase of approximately 12,920 people and 2,870 units.
The Land Use plan accommodates a higher population than projections to provide for planning flexibility, as shown in Table 3-3. Based on average buildout densities for new residential land uses, the Plan accommodates 19,220 new housing units after 2002, approximately 9,350 new units from 2020. These additional 9,350 units would house 27,660 new residents at an average household size of 2.96 people (2020 existing persons per household). The resultant population would be 104,740—14,740 more than the projected 90,000 population at the horizon year (2040) of this General Plan.
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Table 3-4: Housing Units and Yuba City SOI Population at Plan Buildout Compared to 2020 2020 Population Additional Housing
Units
Additional Population
(2.96 persons per
household)
Total Population,
Buildout
Land Use Plan 77,080 9,350 27,660 104,740
Employment
To determine the total additional employment after 2002 accommodated in the Plan, a detailed set of assumptions was developed. These assumptions, presented in Table 3-5, include FARs for each of the job producing land uses, the likely mix in percentages of retail and non-retail employees, and the employment density, explained as the amount of space in square feet needed per employee.
Table 3-5: Employment Assumptions
Land Use Category
Developable
Land Assumed
Ratio of Net to
Gross Area
Assumed
probable
FAR
Percent
Retail
Percent
Non-Retail
Sq Ft per
Retail
Employee
Sq Ft per
Non-Retail
Employee
Neighborhood Commercial 0.85 0.35 70% 30% 500 400
Community Commercial 0.85 0.25 75% 25% 500 400
Regional Commercial 0.75 0.25 80% 20% 600 400
Office & Office Park 0.80 0.30 5% 95% 400 300
Business, Technology and Light Industry 0.75 0.25 0% 100% 0 750 Manufacturing, Processing & Warehousing 0.75 0.25 0% 100% 0 1,000 The resulting estimates of additional employment for each land use category are presented in Table 3-6. Jobs from commercial and retail development compose 35 percent of additional employment for the plan. Office uses account for 40 percent of employment; light industry, processing, and related uses account for the remaining 25 percent.
Table 3-6: Additional Public and Private Sector Employment* Land Use Category Additional Employment
Neighborhood Commercial 1,105
Community Commercial 2,415
Regional Commercial 3,609
Office & Office Park 8,120
Business, Technology and Light Industry 4,715
Manufacturing, Processing & Warehousing 720
Public (Government and Education) 1,466
Total Jobs 22,150
*Additional after 2002
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Jobs and Housing Balance
As shown in Table 3-7, the jobs/housing ratio expected at plan buildout of areas developed after 2002 will be 1.26 jobs for each housing unit. This ratio does not reflect the fact that many residents commute to the Sacramento area while jobs in Yuba City are often filled by residents of outlying communities.
Table 3-7: Jobs / Housing Ratio at Plan Buildout*
Total Jobs 22,150
Total Housing Units 19,220
Employed Resident Ratio less Vacant Units 0.96 minus .05 = .91 Job Producing Households 17,488
Ratio: Jobs/Households 1.26
*Applies only to new development after 2002.
3.6 PATTERN OF DEVELOPMENT, GROWTH & EXPANSION
One of the key initiatives in this plan is the idea that Yuba City retain a compact form, protecting the surrounding rural areas with a clearly defined SOI. The policies presented in this section are intended to contain development within the SOI and achieve two purposes – maintain Yuba City’s small town feel and preserve the surrounding agricultural rural landscape.
The policies in this section focus on how these goals can be achieved through the location and nature of land uses. A discussion of the character of urban edges and other initiatives to achieve these goals through design are discussed in Chapter 4: Community Design.
GOALS, POLICIES, AND IMPLEMENTATION
Goal LU 1-1. Maintain a well-defined compact urban form, with a defined sphere of influence and urban development intensities on land designated for urban uses.
Policy LU 1-1: Establish zone districts, development standards, and performance standards in the Zoning Ordinance consistent with the General Plan and amend the Zoning Map to be consistent with the General Plan Land Use Diagram.
Policy LU 1-2: Establish standards for urban edges and ensure that designated intensities and uses provide an appropriate transition to rural land at these edges.
Policy LU 1-3: Support the County’s efforts to maintain viable agricultural uses surrounding the city in areas outside the proposed Sphere of influence.
Goal LU 2-1. Promote a balanced land use program that increases the ability of people to live and work in the city.
Policy LU 2-1: Require preparation of City initiated Specific Plans or developer master plans for strategic new growth areas with complex land use programs.
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Policy LU 2-2: Provide a variety of housing in all neighborhoods and reserve sites, where appropriate, for housing types that ensures that Yuba City remains an inclusive, affordable community.
Policy LU 2-3: Promote infill development that maintains the scale and character of established neighborhoods.
Policy LU 2-4: Encourage new neighborhoods to include components such as a mix of housing types, open spaces, and community facilities, oriented to a neighborhood center.
Goal LU 3-1. Promote development patterns that maximize residents’ accessibility to parks, open space, and shopping areas.
Policy LU 3-1: Develop downtown Yuba City as a mixed-use activity center with a range of commercial, office, residential, and civic uses.
Policy LU 3-2: Provide for concentrations of activity and mixed-use and pedestrian-oriented development in selected areas.
3.7 RESIDENTIAL AREAS
The General Plan promotes residential densities that provide for more efficient use of available land resources and maintains a compact form that is less intrusive on the surrounding countryside. Objectives behind residential development and neighborhood organizing principles depicted on the General Plan Diagram include:
x Mix of Housing Types. The General Plan promotes a mix of housing types in all neighborhoods and ensures that no one area is unduly burdened by higher-density residences. As discussed in Section 3.2, three types of residential uses are planned: Low Density Residential, Medium Density Residential, and High Density Residential. Some residential development may also occur as part of a larger mixed-use project in office or commercial areas.
x High Density Residential Development in Strategic Locations. The Diagram locates High Density residences in transportation corridors, next to parks, community facilities, and schools, and in mixed-use neighborhood centers. Higher density development is also proposed on vacant and underutilized infill sites as well as on suitable sites likely to undergo long-term redevelopment.
x Promotion of Low-Medium Density Small-lot Single-Family Dwellings. Medium Density small-lot development is encouraged in neighborhoods, where appropriate. These are likely to provide opportunities for many families to participate in the home-ownership market.
BUILDING BETTER NEIGHBORHOODS
To foster community identity, the General Plan directs residential expansion in the new growth areas into neighborhoods. These neighborhoods are planned to contain a mix of uses and housing types and to provide convenient access to retail and commercial services used on a frequent basis. Policies in the General Plan strive to promote the integration of new
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neighborhoods with existing urban development, and to preserve and enhance neighborhood connectivity with a continuous street network.
A neighborhood focal point would be a well-defined mixed-use center with neighborhood commercial uses and publicly-oriented uses and open spaces. Several of these centers are depicted on the Land Use Diagram. Within these neighborhoods, the plan designates sites for a range of housing types near a neighborhood centerpiece, which may be a commercial development, a park, a school, or a mix of uses. The idea is that a larger number of residents can be brought closer to the neighborhood focal point, so they can bike or walk to these areas without having to rely exclusively on automobiles for local trips. Further discussion of these neighborhood centers is contained in Chapter 4: Community Design.
GOALS, POLICIES, AND IMPLEMENTATION
Goal LU 4-1. Encourage new residential and mixed-use development to be in the form of neighborhoods and/or within infill sites.
Policy LU 4-1: The City shall allow for development of mixed-use (residential, retail, and office) neighborhood centers, in both new neighborhoods and in established neighborhoods that lack them.
Policy LU 4-2: The City shall allow low and medium density small-lot single-family housing development in new and existing neighborhoods that enable compact development and efficient infill.
Policy LU 4-3: Improve the “community orientation” of new residential developments.
Policy LU 4-4: Provide for a transition between higher density and lower density residential areas, and require buffers of varying size between residential uses and nonresidential uses without restricting foot and bicycle access.
Policy LU 4-5: The City shall provide incentives for infill development, including affordable housing for low and very low-income residents, within existing residential areas at a density not less than surrounding development, subject to appropriate standards to ensure compatibility with adjacent uses.
Policy LU 4-6: Require a mix of uses in neighborhood centers.
Policy LU 4-7: Require residential development consistent with objective design standards that employs creative site design and architectural quality that blends with the characteristics of each location and its surroundings.
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3.8 COMMUNITY FACILITIES
Community facilities including residential care, day care, elderly care, and alcoholism or drug abuse recovery or treatment facilities, will be allowed within neighborhoods, consistent with state and federal law, because they are considered "protected" facilities and local zoning cannot exclude them if specified standards and licensing requirements are met.
In contrast, large scale community facilities are appropriate in mixed-use neighborhood cores, on community commercial sites, and in Downtown.
Houses of worship and other places for religious assembly as well as private schools and colleges will be permitted in residential and commercial areas, subject to appropriate location and development standards and use-permit requirements to ensure neighborhood compatibility.
Public schools and public colleges are exempt from zoning.
3.9 PARKS AND OPEN SPACE
Parks and open space are a fundamental building block of the Land Use Diagram and the organization of land uses in a growing Yuba City, as most directly evidenced by the two planned large park facilities.
Policies pertaining to parkland, public open space, and the greenway network are in Chapter 6:
Parks, Schools, and Community Facilities. Policies pertaining to non-public open space are in Chapter 8: Environmental Conservation.
3.10 RETAIL AND COMMERCIAL AREAS
Shopping and the use of services are activities that provide for social contact as well as business transactions. Since Yuba City attracts shoppers from a large region, and stores in one part of the City are often frequented by residents from other neighborhoods, retail districts are also critical in shaping the identity and image of the City and the neighborhoods.
To ensure that a diverse range of shopping opportunities are available and easily accessible, the plan provides for new neighborhood centers, located closer to where people live and designed with the pedestrian in mind, and for increased convenience-good opportunities in existing neighborhoods where suitable sites are available. The Plan also builds on the regional accessibility of Routes 20 and 99 in order to plan for regional, auto-oriented commercial development and attempts to capture out-of-town retail tax revenue.
Guiding concepts behind retail and commercial development areas depicted on the General Plan diagram include:
x Provision of more neighborhood-oriented shopping facilities. The General Plan provides sites for several neighborhood-oriented shopping and commercial uses in both new and existing neighborhoods. Implementation of the plan would bring a substantially increased population within a convenient distance of a neighborhood center. x Site for a new regional-retail center. While land is available in proximity to the existing commercial areas in the Route 20 corridor, there is also an opportunity for another regionalretail center. The General Plan provides a site for this on the west side of Route 99 north of Bogue Road.
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x Land supply in proportion to anticipated needs. To ensure the viability of the proposed retail and commercial centers, as well as Downtown, land designated for commercial uses corresponds closely to the anticipated need over the planning period.
GOALS, POLICIES, AND IMPLEMENTATION
Goal LU 5-1. Maintain Yuba City's prominence as the center of retail activity in Sutter County.
Policy LU 5-1: Establish use regulations, development standards, and minimum performance requirements in the Zoning Ordinance, consistent with the General Plan, and amend the Zoning Map to be consistent with the Land Use Diagram.
Policy LU 5-2: Evenly distribute neighborhood and community shopping centers in new development areas to offer both choice and convenience for shoppers and residents.
Goal LU 5-1. Promote neighborhood identity and encourage use of alternative modes of transportation by providing neighborhood shopping centers that many residents can reach on foot or bicycle.
Policy LU 5-1: Require pedestrian-oriented design in new shopping areas that are part of neighborhood centers.
Policy LU 5-2: Ensure that neighborhood retail centers and commercial service buildings are compatible with the surrounding neighborhood and with adjacent travel corridors.
Policy LU 5-3: Establish site development and locational standards for neighborhood corner stores in residential areas.
Policy LU 5-4: Encourage the development of community commercial facilities that are accessible to both vehicles and pedestrians and include amenities for both.
Policy LU 5-5: Establish design standards for mixed use development that will result in a high-quality pedestrian-scaled environment, with one-to-four story buildings, side or rear parking areas, street front windows and entries, and public and private open space.
Policy LU 5-6: As part of larger commercial developments, require amenities for public benefit, such as pedestrian-oriented facilities (outdoor seating, plazas, weather protection, transit waiting areas), historic preservation, cultural facilities, and public spaces.
Policy LU 5-7: Provide specific sites for regionally oriented commercial centers and community-sized shopping facilities and allow residential and office uses above retail in these areas.
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Goal LU 6-1. Promote convenient access to fresh, healthy, and affordable food to eliminate food deserts, prioritizing access in disadvantaged communities.
Policy LU 6-1: Increase access to fresh food, prioritizing access in disadvantaged communities, by allowing and encouraging safe local food production, micro agriculture, edible landscapes, rooftop gardens, community gardens, urban farms, farmers’ markets, food trucks, and community kitchens on vacant or underutilized lands, including City-owned land, to the extent legally permissible and provided that funding is available.
Policy LU 6-2: Maximize multimodal access to fresh food in disadvantaged communities, prioritizing bicycle and pedestrian access, by encouraging grocery stores, healthy corner stores, community gardens, and outdoor markets at key transit nodes and within transit-oriented developments.
Policy LU 6-3: Provide temporary and/or permanent access to City locations and land in disadvantaged communities for farmers’ markets and community gardens.
Policy LU 6-4: Update the Zoning Code to streamline permitting of grocery stores and markets, including co-ops, in disadvantaged communities and food deserts.
Policy LU 6-5: Support efforts to improve food security and eliminate hunger, such as food assistance and nutrition programs.
Policy LU 6-6: Identify funding opportunities to sustain and/or expand free and reducedprice meals programs for low-income youth year-round.
Policy LU 6-7: Encourage the establishment of mobile farmers’ markets to serve food deserts, prioritizing disadvantaged communities, through such measures as identifying and eliminating barriers in the permitting process.
3.11 EMPLOYMENT CENTERS
Objectives and Policies discussed in this section relate to three land uses depicted on the Land Use Diagram:
x Office & Office Parks;
x Business, Technology, & Light Industry; and
x Manufacturing, Processing, and Warehousing.
OFFICE & OFFICE PARK
The demand for new office development may soften somewhat with the increasing trend of work from home and hybrid work schedules. While new offices may still be built, sites that can accommodate flexible office space facilities will be in demand as the local economy matures and the City implements the Economic Development strategy described in Chapter 2.
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The Land Use Diagram provides acreage for both larger site office parks and smaller, integrated office uses. Smaller sites are typically expected to be local-serving professional and administrative office environments, such as medical, real estate, or financial services. Larger sites are envisioned as office parks that draw employees from a wider area and provide more jobs. Offices are also permitted in Regional Community and Neighborhood Commercial areas.
This can be a very effective use of land where new office uses are located above the first floor or as a secondary use in multi-tenant buildings in order to promote retail continuity at the street level. The 2021-2029 Housing Element includes Program H-C-5 encourages development of residential units within mixed-use projects on commercial and office sites.
The recommendations put forth as part of the Central City Specific Plan are also depicted on the land use diagram, most specifically with respect to the continued development of office uses in the Town Center area.
INDUSTRY & LIGHT INDUSTRY
Two land uses are depicted on the Land Use Diagram that have been historically described as “Industrial” or “Research and Development” or “Business Park.” The two new categories – “Business, Technology, and Light Industry” and “Manufacturing, Processing, and Warehousing” – attempt to combine uses with similar development characteristics, while at the same time offering flexibility of use and encouraging the creation of jobs in Yuba City.
Because employment intensity (building space per employee) and site configuration, access and other requirements for these uses vary dramatically, the General Plan provides significant acreage for these developments in a variety of settings and locations. Business, Technology, and Light Industry (BT&I) areas are provided along major transportation corridors and adjacent to existing facilities of the same type. The most significant of these areas is located on the large undeveloped areas to the northwest of the intersection of Bogue Road and Route 99 and is envisioned as a master-planned, regionally oriented development also including an office park and a regional shopping area. BT&I uses are also planned adjacent to the Sutter County Airport and Harter property.
Manufacturing, Processing, and Warehousing (MP&W) areas are presumed to be more “industrial” in character and are often presumed to be resource-based processing facilities.
These areas are not as landscaped an environment as the BT&I areas.
Plan policies also seek to increase the supply of pre-zoned, "ready-to-go" job producing land. to improve Yuba City’s competitiveness in the regional economy by decreasing start-up time for new development.
GOALS, POLICIES, AND IMPLEMENTATION
Goal LU 7-1. Provide appropriately located areas for a broad range of employment generating uses, including along major transportation facilities, to strengthen the City's economic base and provide employment opportunities for residents.
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Policy LU 7-1: Establish use regulations, development standards, and minimum performance requirements for Office & Office Park development, Business, Technology, and Light Industrial development, and Manufacturing, Processing, and Warehousing development in the Zoning Ordinance consistent with the General Plan and amend the Zoning Map to be consistent with the Land Use Diagram.
Policy LU 7-2: In new employment center areas, require master plans and infrastructure financing programs as a condition of subdivision approval, so haphazard development, without a coordinated plan for land use, circulation, infrastructure, and public services, does not occur.
Policy LU 7-3: Seek cooperative agreements with Sutter County towards the development of agricultural- and resource-based employment centers in areas outside the Yuba City Sphere of Influence, adjacent to the urban area, and along key transportation corridors.
Goal LU 8-1. Encourage local serving professional and administrative offices to locate as part of locally-oriented office uses and in mixed-use community activity centers, including within the Town Center development adjacent to downtown Yuba City.
Policy LU 8-1: Allow supporting retail and business services and other complementary uses in Office & Office Park areas.
Policy LU 8-2: Allow advanced educational uses, such as commuter colleges and technology teaching institutes, in Office & Office Park areas.
Goal LU 9-1. Provide sites for commercial services that complement employment center development or that require an industrial environment.
Policy LU 9-1: Permit offices as a primary use within Business, Technology, and Light Industrial areas and as a secondary use in Manufacturing, Processing, and Warehousing areas, upon finding that such a use is compatible with the primary use and will not adversely affect the traffic-carrying capacity of adjacent streets.
Policy LU 9-2: Conditionally allow commercial recreation uses within warehouse space, provided these uses do not conflict with adjacent uses.
Goal LU 10-1. Protect the supply of land suitable for employment center uses by achieving compatibility between employment center development and surrounding neighborhoods through buffering requirements and performance standards intended to minimize harmful effects of excessive noise, light, glare, and other adverse environmental impacts.
Policy LU 10-1: Allow small office development as a buffering or transitional use between residential areas and industrial areas or major roadway corridors.
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Policy LU 10-2: Establish setback, landscaping, and screening requirements for employment center development to provide adequate buffering adjacent to residential neighborhoods.
4-1
4 Community Design Element
Although a General Plan typically describes needed services and facilities, and appropriate land uses to accommodate anticipated growth, these components are not sufficient to ensure the quality of life – the livability – that Yuba City residents want. The City’s vision of becoming a premier community in the Sacramento Valley can and will be achieved through the quality of development, with attention to neighborhoods, pedestrian-oriented shopping areas, and linkages between these uses. This Community Design Element establishes policies aimed at ensuring the creation of public and private improvements that will maintain and enhance the image, livability, and aesthetics of Yuba City in the years to come.
Yuba City is committed to high-quality community design – most clearly exemplified by the successful Town Center redevelopment project, by the Harter and Buttes Vista specific plans, Bogue-Stewart Master Plan
located on the south side of
town and the City’s design
guidelines. The Community
Design Element builds on the
character of Yuba City and
design ideas in these plans and
provides policies that will
promote the maintenance and
enhancement of Yuba City’s
small town feel and rural
heritage.
This chapter presents several
overarching objectives for
community design in Yuba
City. These principles provide
the framework for the policies
that follow. These policies focus on the rural/urban edge, the key vehicular gateways into Yuba City, connections and corridors linking different areas of the City, urban activity centers, commercial and industrial areas, and neighborhoods.
Wall mural on Church Street near Plumas Street.
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4.1 OBJECTIVES
The following objectives capture the essence of community design, as embodied in this General Plan.
x Maintain the identity of Yuba City as a small-town community, commercial hub, and residential community, surrounded by agricultural land and convey, through land uses and design amenities, Yuba City’s character and place in the Sacramento Valley. x Recognizing the livability and beauty of peer communities with highly designed visual landscapes, commit to a focus on the visual landscape of Yuba City. x Maintain, develop, and enhance connections between existing and planned neighborhoods. x Create and build upon a structured open space and parks network, centered on two large urban parks and the Feather River Corridor.
x Strive for lush, landscaped public areas marked by extensive tree plantings. x Design commercial and industrial centers to be visually appealing, to serve both pedestrians and automobiles, and to integrate into the adjacent urban fabric. x Create new communities and new neighborhoods that are interesting in design and unique in character.
4.2 URBAN/RURAL EDGE
The roughly rectangular shaped form of the Yuba City Planning Area is surrounded on three sides by the rural landscape of Sutter County. The fourth, eastern border is shared with the City of Marysville, just across the Feather River. Yuba City residents strongly identify with Yuba City’s setting in rural agricultural Sutter County. Views and images of orchards and crop rows are important aesthetics. By creating strong city boundaries that emphasize the surrounding natural resources, the City is placed appropriately in the context of rural Sacramento Valley.
Currently, agricultural land only loosely denotes the urban development edge in Yuba City. A sharpening of the urban/rural edge will help redefine Yuba City’s physical form and create a better sense of place. The striven-for image is of a cohesive small city set in the context of rural surroundings. Clearly defined edges create this image; loosely defined edges are perceived as uncontrolled sprawl. Furthermore, development outside the urban growth boundaries would adversely affect agricultural land, which is important to both the County and the City.
Three straight roadways roughly define the Planning Area boundary on the north, west, and south of the Planning Area. Bogue Road on the south, Township Road on the west, and Pease Road on the north offer opportunities for defining clear boundaries between urban Yuba City and the rural countryside. These edges, which have been negotiated between the City and County, create a physical separation between Yuba City and the rural County, keeping Yuba City unique and identifiable. This chapter offers policies for utilizing these roadways as physical edges of the community and visually distinguish urban from rural. The fourth edge of the community – the Feather River corridor that defines the City’s eastern border, is described in Chapter 6 of this plan.
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GOALS, POLICIES, AND IMPLEMENTATION
Urban/Rural Edge
Goal DS 1-1. Establish a clear distinction between the urban growth area and the surrounding rural and agricultural land.
Policy DS 1-1: Create a “soft” transition at the urban/agricultural edge by appropriate landscape, with large canopy ties that are visually compatible with schools.
Policy DS 1-2: Maintain views into the agricultural lands on the rural side of the roadways by:
x Not planting within the right-of-way, trees spaced farther, and x Designating a minimum of 6 feet of space in the right of way for a curb and gutter on the rural side of the road.
Policy DS 1-3: Differentiate the landscape treatment of urban edges near key intersections.
Goal DS 2-1. Establish a clearly defined, compact form for the urban growth area.
POLICIES
Policy DS 2-1: Establish a distinct design character for new development along Bogue Road, Township Road and Pease Road, as illustrated in Figure 4-1, in order to clearly demarcate the urban edge. This will be accomplished by:
x Enforcing a 60-foot minimum rear setback requirement on new development along these roads;
x Creating a 40- to 50-foot-wide landscaped buffer within the public right of way;
x Planting multiple layers of trees closely for visual impermeability; and x Limiting local access (but allowing collector and arterial access and only a minimal number of residential streets) from these roads in order to maintain continuous street edges.
4.3 GATEWAYS AND ENTRIES
Strong entries are another important element of community design. This section identifies entry points and assigns unique features to them. These features will help fulfill the goal of enhancing the image of Yuba City as an urban area markedly differentiated from the surrounding rural landscape. Route 99 is the primary entry from the north and south. Route 20, the primary entry from the west and the Feather River bridges are the eastern entries from Marysville. Garden Highway also is an important entry to Downtown.
The location and proposed design character of Gateways and Entries are illustrated in Figure 4-
2.
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Figure 4-1: Urban/Rural Edge
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Figure 4-2: Gateways and Entries
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GOALS, POLICIES, AND IMPLEMENTATION
GATEWAYS AND ENTRIES
Goal DS 3-1. Enhance key City entrances on primary vehicular corridors and demarcate the transition from rural to urban land with distinct entry features.
Policy DS 3-1: Designate Route 99 near Pease Road, Route 99 near Bogue Road, Route 20 near Township Road, Garden Highway near Drummond Drive, George Washington near Bogue Road, and the Feather River bridges as entry gateways into Yuba City, and create distinctive features at these locations, as follows:
x Route 99 near Bogue Road and Route 20 near Township Road. These entries are on high speed state highways and where regional-scale commercial and office uses are planned. Continual vehicle-oriented street lights with welcoming signs attached on each side can accentuate both the City gateway and the development nearby. Lush trees planted closely on each side of the street can provide another transitional element as one enters from the rural area where the roads are marked with fewer trees. x Route 99 near Pease Road. Around this planned highway interchange, planned land uses are predominantly residential. South of the planned interchange, this portion of Route 99 is separated from adjacent homes by a frontage road and landscaping, and the environment will remain vehicleoriented. A welcoming sign, consistent with Caltrans standards, can be placed in the right-of-way or on the Pease Road overpass to mark the entry.
x Garden Highway near Drummond Drive. Low density residential development and an elementary school are planned around this intersection. Densely landscaped trees and welcoming signs on both sides of the street can subtly announce the entry into the City. x George Washington near Bogue Road. Along George Washington, signs directing traffic to different neighborhoods and major amenities in western portion of the City such as the two major parks, the panhandle, new neighborhood commercial centers, and the parkways can be introduced, coupled with differentiated landscaping, at the intersection. x Feather River Bridges and Route 20 near Sutter Street. Bridges alone can provide a sense of entry which can be enhanced through signage and landscaping. Welcoming signs on the Feather River Bridge coupled with a well-designed entry intersection near the terminus of the bridge can enhance the processional experience as one enters the City. These signs can direct travelers to Downtown and the planned Feather River park areas. Street trees and pedestrian-scale lighting should be introduced to enhance this entry.
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4.4 CONNECTIONS & CORRIDORS
The way streets will connect new neighborhoods to shopping areas, parks, schools, and employment centers is a critical design element. This section focuses on the design of these connections and the character of new streets. More detail on proposed circulation system improvements, particularly dimensions for street cross-sections and on-street parking policies, is presented in Chapter 5 of the General Plan.
The key to enhanced connectivity is to ensure that new neighborhoods are integrated in the City’s street grid; that streets connect to other streets, both within neighborhoods and to adjacent neighborhoods and commercial districts. Many existing subdivisions are not connected to one another and have few outlets onto major arterials. Also, some collector and arterial corridors in the city are not well-defined and lack pedestrian amenities and street trees.
Improving the streetscape design of these roadways will contribute to the visual and aesthetic perception of the city as a whole.
This section establishes policies and design concepts to strengthen the main corridors by means of streetscape improvements and elements that will define and enhance each of them. New streetscape designs should be tailored to announce and accommodate adjacent amenities such as parks and commercial centers. Well-designed corridors will join different neighborhoods and activity nodes together.
Neighborhood Connectivity
Fluid connections between new proposed neighborhoods and existing neighborhoods will be established by extending existing arterials, creating new streets, and ensuring that new streets connect with existing streets. For example, Bridge Street and Cherry Street are existing eastwest streets planned to be extended westward to serve the newly planned neighborhoods. To alleviate north-south traffic from Route 99, two new parkways are planned on the west side of Route 99. Also, new east-west and north-south local streets are planned to connect the new developing areas to the one-mile grid system. The overall street network is designed to connect each neighborhood to one another, to connect neighborhoods to local shopping districts and activity centers, and to provide accessibility to major urban amenities, parks, open space, and downtown, and to the regional highway system. The new street system and hierarchy is discussed further and illustrated in Chapter 5: Transportation.
Routes 20 & 99
Running east-west, Route 20 is a four to six-lane state highway. It extends to the City’s river edge and turns into Feather River Bridge. Large scale regional commercial activities are concentrated along Route 20 and around the Route 99/Route 20 intersection. The planned development intensity is lower near the west edge of the city where office and light industrial activities are to be located.
Route 99 will be a four to six lane state highway that is in a below-grade “cut” north of the Queens Avenue intersection. Large-scale commercial development is located at the Route 99/20 intersection; low density residential development exists both north and south of the commercial
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areas. Regional-scale office and commercial development are planned along the west side of Route 99 between Lincoln and Bogue roads.
Design concepts for Routes 20 and 99 envision upgrading the appearance of the corridors as circulation system improvements, as illustrated in Figures 4-3 and 4-4.
Parkways
Two new parkways are planned to serve new development in the western portion of the Yuba City Planning Area. They are envisioned as roads lined with lush trees on both sides of the road as well as in the median. An “Arc Parkway” is planned near the western edge of the growth area and connects a new park and mixed-use area on the northern edge of the growth area, the regional scale commercial area near Route 20, and two mixed use areas in the southwestern corner of urban area. Another parkway is planned to run north and south from the Harter Specific Plan area south to a new City park at the south and north to the edge of the urban growth area. This parkway offers direct access to the southern City park from the area north of Route
20. The concept of “parkways”– roadways that function as both a visual corridor and a traffic artery – is intended to bring uniqueness and visual richness to two new important Yuba City roadways.
Local Streets: Sutter Street / Second Street / Garden Highway / Bridge Street Sutter Street and Second Street are the easternmost streets in downtown Yuba City and parallel the Feather River levee. Second Street serves civic buildings in the downtown area and is lined with luscious trees and on-street parking spaces. As one travels south on Second Street, the roadway splits and directs one either east to a boat dock on the Feather River or west to Garden Highway. Garden Highway is more vehicular-oriented and is lined with automobile-related shops. Although Garden Highway is the closest vehicular road running parallel to the river, it is three-fourths of a mile from the river and no view corridors toward the river exist due to distance and the existing levee.
Bridge Street is a major four-lane east-west currently running from the existing western City limit to the riverfront. Bridge Street is a more established east-west corridor than other corridors running through recently constructed low-density developments. The roadway connects the eastern side of Route 99 to downtown Yuba City. The Bridge Street corridor has a cluster of large commercial properties near the Route 99 intersection and smaller retail properties near Plumas Street and 2nd Street. A short east-west transit connection on Bridge Street exists between Stabler Lane and Gray Avenue.
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Figure 4-3: Route 20 Corridor
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Figure 4-4: Route 99 Corridor
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GOALS, POLICIES, AND IMPLEMENTATION
Connections and Corridors
Goal DS 4-1. Create a well-connected hierarchy of streets that serve existing and planned neighborhoods and strengthen the visual and aesthetic character of each major corridor.
Policy DS 4-1: Ensure that new non-residential development along Route 20 is oriented toward the highway as illustrated in Figure 4-3.
Policy DS 4-2: Ensure that the planned manufacturing and warehousing activities on Garden Highway do not cause adverse visual impacts to the adjacent residential neighborhoods and Feather River corridor.
Policy DS 4-3: Ensure that the proposed B Street Plaza helps to showcase the steps at the end of B street as a gateway to the river park areas by:
x Prohibiting construction of buildings or tall elements on the eastern edge of the plaza.
x Maintaining a low plaza height.
x Enhancing an open feeling for the plaza as a whole.
Policy DS 4-4: Plant trees as visual buffers along the existing industrial and commercial development.
Policy DS 4-5: Require landscaped setbacks from Route 99 and establish standards for streetscape improvements, including planting strips and landscape medians, where appropriate, as illustrated in Figure 4-4. Ensure that fences are combined with trees and landscaping in order to demarcate residential property lines.
Policy DS 4-6: Designate Bridge Street as an important riverfront access corridor.
Policy DS 4-7: Establish a 15-foot wide landscaped buffer in the public right of way between Garden Highway and the industrial uses.
Goal DS 5-1. Create a comfortable street environment for motorized and nonmotorized users.
Policy DS 5-1: Install covered bus shelters and pedestrian-scale street lighting near existing and planned bus stops.
Policy DS 5-2: Create a pedestrian-friendly environment on Sutter and Second Streets, linking Downtown and the waterfront within the Feather River corridor, as illustrated in Figure 4-7.
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Policy DS 5-3: Provide signage, landscaping, lighting, and other visual features to emphasize the existing and planned pedestrian access to the riverfront.
Policy DS 5-4: Extend the tree-lined wide sidewalks of the Second Street near the B and C Street intersections north to Sutter Street.
Policy DS 5-5: Create signage and maps illustrating various park spaces in the Feather River Corridor to direct downtown pedestrians on Second Street to the waterfront.
Policy DS 5-6: Establish design standards for a new community commercial corridor that accommodates pedestrians and transit uses along Garden Highway between Franklin and Winship roads. (See Figure 4-7).
Policy DS 5-7: Widen the sidewalks and install pedestrian-scale street light fixtures on Bridge Street from Boyd Streets to 2nd Street to accommodate pedestrians.
Policy DS 5-8: Construct and maintain covered bus shelters at new and existing bus stops along Bridge Street.
Policy DS 5-9: Place pedestrian amenities such as pedestrian-scale street lighting, benches, and planting strips on the western side of Garden Highway where community commercial core is planned.
Policy DS 5-10: Design new residential streets with sidewalks, planting strips and trafficcalming elements to create a pedestrian-friendly environment.
Policy DS 5-11: In order to ensure that street layout in future development incorporates the need for neighborhood connectivity and the comfort and safety of pedestrians and bicyclists consistent with the Community Design Chapter, it is essential that:
x New development be more "connected" to the surroundings with an increased number of access points and pedestrian and bicycle connections to the neighborhood network;
x Blocks be short to allow for more direct connections; x Neighborhood streets be designed at a human-scale, without excessive cross-sections; and
x Traffic controls, including speed limits, signage and truck routes, restrict commercial traffic in neighborhoods.
x Connections minimize barriers so that people of all physical abilities can enjoy mobility and accessibility in the community.
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Goal DS 6-1. Allow for flexibility in streetscapes to accommodate various adjacent land uses.
Policy DS 6-1: Plant trees along with masonry fences to buffer existing residential development from the highway. Require a minimum 10 feet buffer between the front property line and the edge of the road.
Policy DS 6-2: Ensure that non-residential building façades are visually attractive, with windows offering views into buildings and architectural articulation; prohibit large blank walls facing the street unless screened by landscaping.
Policy DS 6-3: Orient commercial buildings on infill sites toward the sidewalk (on Garden Highway between Franklin & Bishop Roads), and place parking on the side or in the rear of the lot.
Policy DS 6-4: Establish a parkway street cross-section as illustrated in Figure 4-5 and 4-6 characterized by the following:
x A landscaped median with a minimum width of 15 feet and trees that will create a continuous, formal appearance.
x A symmetrical tree layout for sidewalk planting strips abutting residential developments.
x Separate bike paths on at least one side of the parkway buffered from vehicular traffic by planting strips.
x On-street parking only adjacent to the south park and the “panhandle”. x Sidewalks on both sides of the parkway. Wider sidewalks are allowed when abutting commercial developments.
x A landscaped median is not required for the portions of the parkways adjacent to the south park and the “panhandle”. Instead, devote 7 to 8 feet of space on the side of the parkways away from these areas for on-street parking.
Policy DS 6-5: Design streetscape and landscape elements to create a processional sequence of spaces that will enhance the riverfront theme as illustrated in Figure 4-8 along Bridge Street by installing continual promotional banners and street lights on both sides of the street.
Policy DS 6-6: Provide a landscaped median on Bridge Street between Plumas and Gray Avenue.
Policy DS 6-7: Establish vehicular access controls that limit access to developments from the parkways by:
x Limiting left-turn intersections to every half a mile. x Limiting driveway access into new development from parkways.
These are consistent with Chapter 5: Traffic and Circulation
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Figure 4-5: Parkway Design Concepts
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Figure 4-6: Parkway Configuration Near a Public Open Space
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Figure 4-7: Sutter Street/Second Street/Garden Highway
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Figure 4-8: Bridge Street Corridor
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4.5 URBAN ACTIVITY CENTERS
To make new centers for development (as proposed in the Chapter 3: Land Use) vibrant and livable, this Chapter proposes that they be planned as integrated “Activity Centers” where a mix of urban uses will occur in a pedestrian-oriented, landscaped environment. New residential development will be located with easy access to these centers, as well as to the new large City Parks. Figure 4-9 illustrates these conceptual relationships. The Activity Centers fall into two categories:
x Larger scale Regional Activity Centers are proposed along major roadways and are envisioned to be regionally focused, including a range of employment opportunities and retail establishments serving a regional need. A center at the northwest intersection of Route 99 and Bogue Road and a center on Route 20 between George Washington and Township Roads complement existing plans for the Harter Specific Plan area and downtown Yuba City. x Three locally-oriented Community Activity Centers are planned in the western portion of the urban area, two in the southwest quadrant of the planning area, and one in the northeast quadrant. These activity centers are envisioned as “Village Centers” that attempt to duplicate the small-town character of Yuba City as it develops by providing areas where community residents meet and shop. Through a mix of housing types, a mix of commercial uses, open space, schools, and community facilities, a sense of place can be achieved in newly developing areas.
This section focuses on design concepts for urban activity centers. Additional design guidance on land use and development standards for commercial and residential areas are in Section 4.6, Commercial & Industrial Development, and Section 4.7, Neighborhoods.
Goals, Policies, and Implementation
Regional Activity Centers
Goal DS 7-1. Design Regional Activity Centers, to include a mix of uses, including regional retail, office, and service uses offering shopping and employment opportunities for both residents of Yuba City and the regional population.
Policy DS 7-1: Using the Harter Specific Plan as an implementation tool, provide an additional employment and retail center on the former Harter Packing Company property; create a business park and commercial development opportunities; create an efficient circulation pattern; and provide a mix of uses as described in the Specific Plan.
Goal DS 8-1. Promote convenient vehicular and transit access to Regional Activity Centers, with convenient pedestrian access within the centers and to adjacent neighborhoods.
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Figure 4-9: Community Activity Centers
Policy DS 8-1: Using a developer’s master plan or a City-initiated Specific Plan, create two new Regional Activity Centers; one center northwest of the intersection of Route 99 and Bogue Road and one center on Route 20 between George Washington and Township Roads. These plans are to include provisions for the following:
x An integrated mix of regionally-oriented uses;
x Highly landscaped business parks and office parks;
x A unified design theme throughout the development, marked by consistent signage, plantings, street lighting, street furniture, roadway markings, and building design characteristics;
x Pedestrian- and bicycle-friendly environments;
x Facilities to ensure access by public transit;
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x Tree planting programs;
x Appropriate internal circulation and adequate connections to arterials and State highways;
x Landscaped buffers and edges with parkways, marked by berms, trees, and limited curb cuts, where applicable;
x A mix of residential uses, with over 65 percent in the medium to high density category;
x Pathway and local street connections to integrated residential development;
x Public open space, plazas, and green space; and
x Perimeter buffering to protect existing neighborhoods.
Policy DS 8-2: Using the Central City Specific Plan as an implementation tool, continue to advance downtown Yuba City as a focus of civic and cultural activity in the community, retain a strong pedestrian orientation and scale, create new uses in the Town Center development, preserve and enhance buildings of special historic and architectural interest, and seek new development opportunities for available re-use sites.
Community Activity Centers
Goal DS 9-1. Design Community Activity Centers to include a mix of housing types, community scale retail, local offices, services, civic uses, community facilities, parks, and schools.
Policy DS 9-1: Establish minimum standards for public open space and central plazas in at least 5 percent of the gross area in each center. Streets leading to the central plazas should provide a processional experience by incorporating elements such as continuous signage and street lights.
Policy DS 9-2: Cluster nonresidential uses in Community Activity Centers around public open spaces and plazas.
Goal DS 10-1. Create a pedestrian orientation with convenient access both with the centers and between the centers and adjacent neighborhoods.
Policy DS 10-1: Establish minimum standards for pedestrian-oriented circulation:
x Require non-residential buildings to be oriented toward the street. The ground-level façade facing the street should be transparent and be articulated to human scale to create pedestrian-oriented sidewalks. x Allow credit for on-street parking. All streets in a neighborhood commercial core should provide on-street parking.
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x Require parking areas to have centrally located pedestrian access with rows of canopy trees to provide shadow walkways.
x Divide off-street parking into small areas whenever possible and connect them to sidewalks or pedestrian pathways.
x Encourage buildings to be located at the street by establishing maximum setback or “build-to lines”, with appropriate step-backs for upper stories; x Requiring awnings and canopies for pedestrian comfort, where appropriate.
4.6 COMMERCIAL & INDUSTRIAL DEVELOPMENT
The policies and design concepts in this section are directed toward creating commercial and industrial developments that are attractive and well-integrated into the community. The recently developed large-scale neighborhood and regional commercial centers in Yuba City are vehicle-oriented and the buildings have large setbacks from the street line for provision of parking lots.
Community commercial centers, located adjacent to residential neighborhoods, provide goods and services to local residents and are assumed to serve both vehicular and pedestrian traffic.
Commercial uses inevitably need to provide parking spaces; however, careful site planning can provide better connections to neighborhoods and vehicular corridors.
Regional commercial areas will primarily service vehicular traffic. Located along highways, these areas will have less relationship with the street than community or neighborhood commercial areas. However, internal pedestrian pathways should provide a safe and well-connected walking environment. The architecture of regional commercial buildings should be articulated to minimize “boxy” appearance.
GOALS, POLICIES, AND IMPLEMENTATION
Commercial & Industrial Development
Goal DS 11-1. Ensure that the new large-scale commercial and industrial development responds to the surrounding development in its building scale, form, and buffering of adjacent uses.
Policy DS 11-1: Establish the following design standards for new commercial development:
x Orientation requirements so entries face streets. Where development is adjacent to an arterial or parkway, it also needs to be “outward looking” with the perimeter oriented to vehicular traffic.
x Prohibitions of blank walls along streets and other publicly visible building elevations.
x Build-to-lines – maximum setback distances along pedestrian-oriented streets.
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x Architectural articulation to modulate the horizontal and vertical scale of large-commercial buildings.
x Awnings and canopies on the street-fronting façade along pedestrianoriented streets to provide weather protection for pedestrians. x Pedestrian-scale signs throughout new commercial development. x Landscaped strips to separate parking lot from street sidewalks.
Goal DS 12-1. Ensure that new large-scale commercial development provides pedestrian access to the surrounding neighborhoods and within the development itself.
Policy DS 12-1: Require community and neighborhood commercial development to provide pedestrian access to the surrounding neighborhoods and within the development complex.
Policy DS 12-2: Require publicly accessible, open space, such as outdoor eating areas, to be integrated into large-scale office and industrial developments.
Goal DS 13-1. Ensure that new large-scale industrial development is buffered from residential neighborhoods but allow design flexibility within these areas to promote economic development.
Policy DS 13-1: Require landscaped compatibility buffers and screening along the edges of industrial areas adjacent to residential areas and parkland.
4.7 NEIGHBORHOODS
While the policies presented previously in this chapter relating to edge conditions and roadway corridors have implications that apply to the City as a whole, this section addresses design and character at a more focused scale, within neighborhoods. A neighborhood is defined as an area of at least 160 acres, with an approximate quarter mile radius from its “center” that includes a mix of uses.
Creating and maintaining quality neighborhoods is a key initiative of this General Plan. Existing neighborhoods should be maintained and improved, and new neighborhoods in Yuba City should be developed with a strong sense of identity. Policies and design concepts in this section are intended to create a “sense of place” in new neighborhoods, by recognizing and strengthening the fundamental elements of traditional neighborhoods. These building blocks included a mix of housing types (as illustrated in Figure 4-10), parks, and community facilities; organized around a neighborhood focal point.
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Figure 4-10: Housing Typology
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GOALS, POLICIES, AND IMPLEMENTATION
Neighborhood Structure
Goal DS 14-1. Encourage development of diverse and distinctive neighborhoods.
Policy DS 14-1: Continue to use the City’s Design Guidelines in development review and prepare a design standards “checklist” for new requirements established by this General Plan.
Policy DS 14-2: Provide a variety of lot sizes within a neighborhood to foster diverse housing types.
Goal DS 15-1. Develop a sense of neighborhood identity through design elements and neighborhood focal points, such as commercial areas, schools, parks, community centers, or a combination of these elements.
Policy DS 15-1: Continue to require on-site common open spaces in multi-family residential development.
Policy DS 15-2: Require new neighborhoods to include components such as a mix of housing types, open spaces, and community facilities, oriented to a neighborhood center.
Policy DS 15-3: Require new housing to provide transitions between the street and building, with variable front setbacks, building articulation and massing.
Policy DS 15-4: Create a sense of a neighborhood identity by gradually decreasing densities away from neighborhood focal points.
Policy DS 15-5: Minimize the visual dominance of garages by establishing specific standards in the zoning ordinance, including:
x Limiting the front width of a house that can be occupied with a garage to be no more than one-half the building width; or
x Requiring garages to be setback from the front façade or located in the rear half of the lot; or
x Requiring additional setback if more than a two-car garage entrance is provided;
x Orienting garage doors 90 degrees from the street; or x Encouraging use of alleys in new development, with garages accessed from the rear; and
x Incorporating design elements on the second level above the garages such as accessory dwelling units, bay windows or balconies.
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Goal DS 16-1. Ensure that new street networks are coherent and provide multimodal access within and between neighborhoods.
Policy DS 16-1: Design local streets to not only accommodate traffic, but also to serve as comfortable pedestrian environments. These should include, but not be limited to:
x Street tree planting adjacent to curb and between the street and sidewalk to provide a buffer between the pedestrian and the automobile, where appropriate; and
x Sidewalks on both sides of streets, where feasible.
Policy DS 16-2: Ensure that the Subdivision Regulations encourage a fine-grained and integrated pattern of streets that provide continuity between neighborhoods, have a human scale, and enhance the character of neighborhoods. x Promote closer spacing between intersections of local streets and limit the maximum block length to 660 feet in low density residential areas and 500 feet in medium and high-density residential areas.
x Limit use of cul-de-sacs to no more than ten percent of the length of all streets in a subdivision map.
x Where cul-de-sacs are used, require pedestrian and bicycle connections through the end to adjacent streets, if a connection is needed to a school, park, retail, or connector street.
Goal DS 17-1. Maintain and enhance the character of existing neighborhoods by undertaking streetscape and signage improvements.
Policy DS 17-1: Avoid using walls as a neighborhood boundary. Solid edges prevent fluid access in and out of neighborhoods.
Policy DS 17-2: Work with neighborhood groups on initiative that would improve or enhance:
x Street trees;
x Signage;
x Street and alley improvements;
x Neighborhood parks.
Policy DS 17-3: Require new developments to underground all utilities needed to serve future buildings and their occupants and work with PG&E to establish undergrounding of utilities in existing residential neighborhoods, where financially feasible.
Policy DS 17-4: Place design elements that signify neighborhood identities at the neighborhood entrances and at neighborhood centers or focal points.
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5 Circulation Element
The Circulation Element is intended to provide guidance and specific actions to improve the safety and efficiency of Yuba City’s circulation system. The Element is based on the philosophy that transportation 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, airport, pedestrian, and bicycle transportation modes, as well as parking.
The Circulation Element
responds directly to the
Government Code Section
65302(b)(1), which requires "a
circulation element consisting
of the general location and
extent of existing and proposed
major thoroughfares,
transportation routes,
terminals, and other local
public utilities and facilities, all
correlated with the land use
element of the plan.”
Transportation and land use
affect each other; therefore,
policies in this Element and the
Land Use Element are tied
together. Careful integration of the City’s traffic and circulation policies with its land use policies will endeavor to ensure that there is sufficient roadway capacity to accommodate traffic generated by planned future development. The City is committed to designing a system of regional routes, local roads, public transit, and bicycle and pedestrian pathways that will enhance the community and protect the environment.
The Land Use Element includes policies related to the physical framework for development that the circulation system is designed to serve and includes policies and objectives for the Airport environs. The Community Design Element addresses landscaping along major streets and planning for new neighborhoods to ensure street connectivity. It also addresses how to create walking, biking, and transit-friendly environments. The Noise Element includes policies to alleviate noise generated by traffic.
A picture of Bridge Street looking toward the intersection with Plumas Avenue.
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5.1 GUIDING PRINCIPLES
Yuba City is committed to providing its citizens, businesses, and visitors with a balanced multimodal transportation network that meets the needs of all users of streets, roads, and highways whether that be in urban, suburban, or rural contexts. A balanced multi-modal transportation system that serves bicyclists and pedestrians as well as drivers is a priority objective of the Element. The original street layout provided street connections linking neighborhoods with workplaces. As the community has grown, connections between neighborhoods, shopping areas, and business locations have not always served residents' transportation needs, so the General Plan provides for new routes in partially developed portions of the Planning Area, and improvement of safety, capacity, and efficiency of the existing system; the Plan also provides ways to reduce auto-dependence through policies that encourage walking, biking, and taking transit.
5.2 ROADWAY SYSTEM
At the core of Yuba City’s circulation network is the roadway system. All modes of transportation depend to some degree upon the roadway system. In Yuba City, this system is based on a traditional grid pattern. Although this pattern has been modified in recent years to include some suburban curvilinear streets in the southern and western portions of the City, the predominant pattern is grid-based and defined by major roadways.
STREET SYSTEM
Yuba City’s roadway system is set up around a hierarchy of street types, which are commonly referred to as functional classifications. The functional classifications for most major streets are as follows:
x Freeways. Freeways serve regional and inter-city travel and should not become the optimum route for intra-city trips. Access is controlled, grade crossings are separated, and medians separate lanes moving in opposite directions. Typical free flow speeds exceed 55 miles per hour.
x Highways. Highways are designed to carry heavy traffic volumes at speeds of 35-55 miles per hour. Highways should serve longer distance intra-city travel as well as linking the City with other nearby urban areas. Access is limited, crossings are generally signalized at grade, parking is not allowed, and medians can be used to separate lanes moving in opposite directions.
x Arterials. Arterials are designed to move large volumes of traffic between freeways/highways and other arterials in Yuba City and to adjacent jurisdictions. Major arterials are access controlled roadways emphasizing mobility between major portions of the City and regional freeways and highways. Minor arterials provide mobility through the City and access to major residential, employment, and activity centers. On-street parking should not be provided on major arterials but may be appropriate for minor arterials that emphasize accessibility over mobility. Driveway access should be minimized, consistent with the primary function of arterials to move through traffic. Bike lanes, landscaped park strips,
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sidewalks, transit facilities, and sound walls may also be accommodated within the right-ofway, depending on the right-of-way width. x Parkways. Parkways provide an attractive, limited access link between residential communities and commercial centers. Parkways should be tree-lined, and if possible, include landscaped medians with functional designs similar to major arterials.
Curbs should be provided but curb cuts should be limited. On-street parking should not be provided. Parkways should provide four travel lanes and accommodate higher-speed travel. x Collectors. Collector streets provide a link between neighborhood streets and arterials.
Collectors provide travel lanes and bike lanes where right of way widths allow. On-street parking may be provided if sufficient width is available. Collectors also provide access to adjacent properties, so driveway access should be discouraged but need not be restricted (subject to accepted engineering practice). Collector streets are shown on the Land Use Diagram. Bike lanes, landscaped parkstrips, sidewalks, and transit facilities may also be accommodated depending on the right-of-way available.
x Neighborhood Local Streets. Neighborhood streets provide direct access to adjacent properties. Neighborhood streets should provide two travel lanes, sidewalks, and landscaping with street trees. On-street parking may be restricted. Bike lanes are usually not needed because neighborhood streets carry low traffic volumes at low speeds and all neighborhood streets are considered to be bicycle friendly.
VEHICLE MILES TRAVELED (VMT)
CEQA Section 15064.3 defines VMT as “the amount and distance of automobile travel attributable to a project”. One (1) VMT is defined as one mile driven by a vehicle. VMT is commonly expressed as a daily value for a typical weekday when schools are in session. While VMT is a useful metric for quantifying the efficiency of a given mix of land uses and roadway network enhancements, it is not a direct measure of congestion or delay.
While VMT has long been used as an input into various environmental analyses, it became increasingly important with the passage of Senate Bill (SB) 743 in 2013. That landmark bill added Section 21099 to the California Public Resources Code, which states that “automobile delay, as described by level of service or similar measures of vehicular capacity or traffic congestion, is not considered a significant impact on the environment”. SB 743 directed the Governor’s Office of Planning and Research (OPR) to amend the CEQA Guidelines to establish new metrics for determining the significance of transportation impacts of projects. In the amended CEQA Guidelines, OPR selected automobile VMT as the preferred transportation impact metric.
The City has prepared for the shift from Level of Service (LOS) to VMT. First, it updated its base year travel demand model to 2020 (pre-COVID) conditions and developed a new cumulative model. Second, it oversaw the preparation of the Interim SB 743 Implementation Guidelines for City of Yuba City (Fehr & Peers, 2020). With these guidelines, the City has a documented procedure for how to analyze VMT to determine the significance of a land use or transportation project’s impacts to the roadway network. Upon adoption of this updated Circulation Element by the City Council, the policies and analysis procedures described in the Interim SB 743
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Implementation Guidelines for City of Yuba City will also be adopted and available for use when analyzing the VMT impacts of proposed land development and transportation projects.
LEVEL OF SERVICE
To determine the operating conditions of a roadway segment or intersection, the concept of LOS is commonly used. LOS is reported on a qualitative scale ranging from LOS A to LOS F, with LOS A representing free-flow conditions and LOS F representing over-saturated conditions (see Table 5-1). This element establishes LOS policies for weekday AM and PM peak hour intersection operations. Pursuant to SB 743, LOS is no longer utilized in CEQA to evaluate the significance of a proposed land use project on the surrounding roadway system. However, LOS remains relevant because it is an expression of the community’s expected level of operation of the City’s roadway network. LOS policies presented later in this element pertain only to the City maintained intersections. In some cases, physical impediments to roadway widening such as buildings, trees, railroad, or biological resources will keep the City from reaching the LOS anticipated by the General Plan. The City retains flexibility in determining whether a roadway meets the intent of the General Plan regardless of the existing or future LOS.
Table 5-1: Traffic LOS Definitions.
LOS Signalized Intersection
Average Delay Range Traffic Flow Conditions
A ≤ 10 sec/veh
Volume-to-capacity ratio is low and either progression is exceptionally favorable, or cycle length is very short. Most vehicles arrive during the green phase and travel through the intersection without stopping.
B >10 to 20 sec/veh Volume-to-capacity ratio is low and either progression is highly favorable, or the cycle length is short. More vehicles stop than with LOS A.
C >20 to 35 sec/veh
Progression is favorable or the cycle length is moderate. Individual cycle failures (i.e., one or more queued vehicles are not able to depart as a result of insufficient capacity during the cycle) may begin to appear at this level. The number of vehicles stopping is significant, although many vehicles still pass through the intersection without stopping.
D >35 to 55 sec/veh Volume-to-capacity ratio is high and either progression is ineffective, or the cycle length is long. Many vehicles stop and individual cycle failures are noticeable.
E >55 to 80 sec/veh Volume-to-capacity ratio is high, progression is unfavorable, and the cycle length is long. Individual cycle failures are frequent.
F >80 sec/veh Volume-to-capacity ratio is very high, progression is very poor, and the cycle length is long. Most cycles fail to clear the queue.
Source: Fehr & Peers, 2023
Traffic counts were performed at 25 intersections under the City’s jurisdiction while schools were in session. Chosen intersections were situated along numerous arterial streets within the City. Those intersections were analyzed during weekday AM and PM peak hour conditions using Highway Capacity Manual, 7th Edition (Transportation Research Board, 2021) techniques.
Operations were at LOS C or better at 23 of the 25 study intersections. At the time of the counts, the 5th Street Bridge was under construction and temporary traffic control was in place. The two intersections nearest the bridge (5th Street Bridge EB On-Ramp/Bridge Street and Bridge Street/Second Street) operated at LOS D during both peak hours. Operations have since
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improved at each location with the completion of the new bridge. To support current and future intersections, improvements to the traffic signals, and additional turning lanes are planned.
Major intersection improvements are shown in Figure 5-4 Existing and Future Signalized Intersections. The improvements include future signals, viable roundabout locations, and intersection that require future studies, and other intersection improvements. There are 95 locations examined as to what improvements are needed to each respective intersection.
PLANNED IMPROVEMENTS TO ACCOMMODATE BUILDOUT
To support existing and future land use and traffic carrying capacity, improvements to the roadway network are planned. Major street improvements planned for Yuba City are shown in Figure 5-1, Number of Lanes and Functional Classification-Buildout Conditions. These improvements include a variety of new/widened arterial streets, minor widening on SR 20, a new interchange on SR 99 at Pease Road, and numerous new collector and local streets to provide a well-connected circulation system. The City maintains a capital improvement program (CIP) linked to development impact fees to help offset the cost of new roadways.
In contrast to the above, analysis of SR 99 and SR 20 within the City limits shows poor operations under cumulative market-absorption conditions. This is caused by continued traffic growth, and minimal infrastructure improvements (i.e., only capacity increasing project expected in the timeframe would be a ½-mile widening of SR 20 west of SR 99).
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Figure 5-1: Number of Lanes and Functional Classification-Buildout Conditions
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CONNECTIVITY
The traditional grid system in Yuba City’s older neighborhoods allows for through movement and good connections between and within neighborhoods. Short blocks offer a choice of routes and enable more direct connections. While Yuba City's traditional neighborhoods are based on an orthogonal grid, variations can also allow for diagonal and curvilinear streets as well as larger or smaller blocks for maximum flexibility and improved connectivity.
In contrast, many of the recently completed neighborhoods are built using many cul-de-sacs.
This type of design promotes circuitous travel and results in traffic being distributed along fewer streets where heavy traffic walls-in neighborhoods and requires sound walls. More desirable is a grid-based development that balances sense of proximity and ease of access with the quieter environments of the newer neighborhoods.
GOALS, POLICIES, AND IMPLEMENTATION
Goal CI 1-1. Promote more efficient motor vehicle, bicycle, and pedestrian circulation.
Policy CI 1-1: Continue to use the Public Works Standard Details in development review.
Policy CI 1-2: Locate arterials and collectors according to the general alignments shown in Figure 5-1. Minor variations from the depicted alignments and standard design elements will not require a General Plan amendment.
Policy CI 1-3: Develop right-of-way and improvements consistent with street designations on Figure 5-1 and Public Works Standard Details.
Policy CI 1-4: Develop and manage residential streets (i.e., streets with direct driveway access to homes) to limit average daily vehicle traffic volumes to 2,500 or less.
Policy CI 1-5: As appropriate, implement traffic calming measures such as minimum road right of ways, roundabouts, traffic circles, and other measures.
Policy CI 1-6: Prohibit on-street parking along parkways unless there are specific fronting land uses that require parking (e.g., park).
Policy CI 1-7: Strive to maintain a minimum average distance of one quarter mile between parkway intersections, except in commercial areas or other high-volume traffic areas as determined.
Policy CI 1-8: Require transportation analysis for new development projects consistent with Public Work’s standards. Exceptions may be granted where traffic studies have been completed with relevant analysis for the project.
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Policy CI 1-9: Provide for greater street connectivity by:
x Incorporating in subdivision regulations requirements for a minimum number of access points to existing local or collector streets for each development (e.g., at least two access points for every 10 acres of development).
x Encouraging traffic circles and roundabouts over signals. x Requiring bicycle and pedestrian connections from cul-de-sacs to nearby public areas and main streets, when feasible.
x Requiring new residential communities adjacent to undeveloped land planned for urban uses to provide stubs for future connections to the edge of the property line. Where stubs exist on adjacent properties, new streets within the development should connect to these stubs.
Goal CI 2-1. Provide fair and equitable means for paying for future street improvements.
Policy CI 2-1: Maintain an Impact Fee Program.
Policy CI 2-2: Require that new development form, or annex into community facilities districts or other funding mechanisms designed to provide maintenance of infrastructure.
Goal CI 3-1. Coordinate local actions with State and County agencies to ensure consistency.
Policy CI 3-1: Continue to work with Caltrans to achieve timely construction of programmed freeway and interchange improvements and state highway improvements.
Policy CI 3-2: Work with SACOG to ensure that General Plan amendments are incorporated in the regional traffic model and incorporated into analysis required for Metropolitan Transportation Improvement Plan updates.
Goal CI 4-1. Strive to maintain acceptable levels of service and plan the future transportation system to support new development.
Policy CI 4-1: Prioritize the carrying capacity of arterial roadways (over local access) by controlling the number of intersections and driveways, generally prohibiting direct residential access, and requiring a supply of off-street parking appropriate to the type of project and setting.
Policy CI 4-2: Strive to maintain a target LOS D or better for collector and/or arterial for citycontrolled intersections. The Council may accept different LOS standards for state highways and intersections, and other roadways.
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Goal CI 5-1. Make efficient use of existing transportation facilities, and, through the arrangement of land uses, provision of safer and more direct routes for pedestrians and bicyclists, strive to reduce the total vehicle-miles traveled per household.
Policy CI 5-1: When feasible, construct complete streets for new and modified roadways, plan for usage of the roadway space by all users, including motor vehicles, transit vehicles, bicyclists, and pedestrians (complete streets).
Policy CI 5-2: When analyzing proposed land use and transportation projects follow the requirements of the Interim SB 743 Implementation Guidelines for City of Yuba City or as amended.
5.3 TRANSIT
Transit service and facilities in Yuba City are provided by both public and private operators. The following outlines each service and identifies major facilities.
Public Transit
Yuba-Sutter Transit (YST) is the public transit operator for Yuba City, Sutter and Yuba Counties, and provides many transit options for residents and visitors. YST currently operates fixed routes within the City with loops connecting major activity centers, residential neighborhoods, Caltrans Park & Ride facilities, and the City of Marysville. A Dial-A-Ride service is provided for senior citizens, disabled persons, or residents that live beyond one-quarter mile from a fixed-route. The YST fixed-routes can be currently found on their website at https://www.yubasuttertransit.com/routes.
Service outside Yuba City includes a weekday commuter express service to and from Sacramento and Lincoln. A weekday regional service is also provided which includes round trips to and from Live Oak, Wheatland, and the foothills.
Private Service
Private transit service in Yuba City is provided by on demand ride hailing services augmented by taxi and limousine services. Yuba City residents and employers coordinate carpooling or vanpooling independently.
GOALS, POLICIES, AND IMPLEMENTATION
Goal CI 6-1. Continue to expand and improve the existing transit and non-motorized network to provide convenient and efficient mobility between residential areas and workplaces, shopping, and other destinations.
Policy CI 6-1: Participate in regional transit planning with other public agencies in the region to enhance regional public transit service in Yuba City.
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Policy CI 6-2: Require new development to provide transit improvements consistent with the Public Works Standard Details and YST standards.
Policy CI 6-3: Coordinate with Caltrans and YST to expand and improve the network, particularly among disadvantaged communities.
Policy CI 6-4: Work to establish an Active Transportation Plan (ATP).
Policy CI 6-5: Support programs offering free and reduced-price transit passes for lowincome individuals.
5.4 BICYCLE AND PEDESTRIAN CIRCULATION
Bicycling and walking are a key component of the City’s multi-modal transportation system and have benefits including that they are inexpensive, energy conserving, non-polluting, and support healthy exercise. Yuba City's flat topography and warm climate make choosing to walk or bicycle an attractive transportation option.
Although bicycle and pedestrian facilities are provided in Yuba City, some gaps still exist in the transportation networks for these modes. Some bicycle paths and bicycle lanes exist, but they are not continuous. Similarly, sidewalks exist on many streets throughout the city, but are not continuous. As pedestrian and bicycle travel is related to perceived safety and convenience, providing a safe and complete network of pedestrian and bicycle facilities should continue to increase the use of these modes of travel, especially when crossing heavily traveled roads such as SR 20 and SR 99.
BIKEWAYS
There are four types of bikeway classifications, as shown in Figure 5-2, Bikeway Classifications.
A “Class I” bikeway, also referred to as a bike path, is a right-of-way that is completely separated from any street and is shared with pedestrians. A “Class II” bikeway, or bike lane, is a one-way, striped, and signed lane on a street. A “Class III” bike route shares the road with other vehicle traffic and is marked only by signs. Class IV facilities are separate bikeways, intended for the exclusive use of bicyclists. They include a separation between the bikeway and the through vehicular traffic lane.
In Yuba City, existing and planned bicycle facilities are identified in the Yuba City Bikeway Master Plan (2011). This document also contains the goals and policies for providing bicycle facilities in Yuba City. Existing bicycle facilities in Yuba City consist primarily of Class II bike lanes on arterials and collectors. The City has also adopted an Abandoned Railroad Corridor Study analyzing the potential future use of right of way to be utilized as pedestrian and bicycle trails. A conceptual design is shown in Figure 5-3.
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Figure 5-2 Bikeway Classifications
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Figure 5-3: Abandoned Railroad Cross Section Showing Road and Bikeway.
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PEDESTRIAN CIRCULATION
While sidewalk capacity is not an issue, in general, all areas should be designed to a scale that accommodates pedestrians and bicyclists. 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. The new neighborhood centers should also be designed to be "pedestrian friendly." In these areas, changes to street design should be considered to accommodate increased flows, improve accessibility, and to give preferential treatment to pedestrians. Pedestrian-friendly facilities should also be provided near transit stops and adjacent to medium and higher density residential areas.
GOALS, POLICIES, AND IMPLEMENTATION
Goal CI 7-1. Develop a system of sidewalks and bikeways that promote multi modal transportation and recreation.
Policy CI 7-1: Establish a network of on- and off-roadway bicycle routes and encourage their use for commute, recreational, schools and other trips. Design bike routes with the safety of cyclists as a priority.
Policy CI 7-2: Provide bicycle lanes consistent with Public Works Standard Details or separated bikeways on new streets and existing streets whenever roads are improved.
Policy CI 7-3: Require new development to include a series of walkways within new office parks, commercial districts, and residential neighborhoods so they connect to one another.
Policy CI 7-4: Encourage pedestrian infrastructure in conjunction with the development, redevelopment, and design of mixed-use neighborhood core areas, the Downtown area, schools, parks, and other high use areas.
Policy CI 7-5: Encourage the reuse of abandoned rail rights-of-way, levees, and other easements, and seek to acquire suitable rights-of-way for separate bicycle paths as they become available.
Policy CI 7-6: In accordance with Public Works Standard Details, design new pedestrian facilities to be accessible to all persons regardless of ability and ensure that roadway improvement projects address mobility or accessibility for bicyclists or pedestrians.
Policy CI 7-7: Prioritize improvements to bikeways and sidewalks in disadvantaged communities to make active transportation more accessible and user-friendly.
Policy CI 7-8: Incorporate multi-model transportation into the development impact fee program.
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PARKING
It is important to balance the need for enough parking to sustain existing activity and attract new development with the need to reserve curb space for bus stops and with the City's financial ability to meet other public needs. Parking decisions affect land use and development patterns, as well as travel behavior. The placement and type of parking must accommodate the needs of businesses (who view parking as a marketing tool), pedestrians (who can view parking as a barrier when parking blocks walking paths), motorists (who want to park as close to their destination as possible), and residents (who desire both on-street and off-street parking).
GOALS, POLICIES, AND IMPLEMENTATION
Goal CI 8-1. Provide attractive and convenient parking facilities.
Policy CI 8-1: Manage public parking for the downtown area to support the needs of local businesses and shoppers.
Policy CI 8-2: Allow shared parking facilities and/or off-site parking facilities, or other options whenever possible, to reduce the number of new parking stalls required.
Policy CI 8-3: Continue to limit parking serving commercial and other employment uses in residential neighborhoods by adopting parking control strategies such as zoning restrictions, signs, or permit systems, where appropriate.
Policy CI 8-4: Use parking standards to support trip reduction goals by:
x Allow parking reductions for projects that have agreed to implement trip reduction methods, such as paid parking, and for mixed-use developments; and
x Provide preferential parking for carpools and vanpools in non-retail projects with more than 100 employees.
5.5 GOODS MOVEMENT
In addition to moving people, the roadway system in Yuba City carries a substantial number of trucks moving goods. 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.
GOALS, POLICIES, AND IMPLEMENTATION
Goal CI 9-1. Provide adequate circulation and off-street parking and loading facilities for trucks and facilitate intermodal goods delivery.
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Policy CI 9-1: In consultation with Sutter County and Caltrans, designate and provide signed truck routes, ensure that adequate pavement depth, lane widths, bridge capacities, loading areas, and turn radii are maintained on the designated truck routes, and prohibit commercial trucks from non-truck routes except for deliveries. Surface Transportation Assistance Act (STAA) trucks shall be directed to approved areas only. STAA truck parking areas shall be encouraged to develop outside the City limit boundaries unless measures are established to mitigate impacts of proposed STAA trucking operations on city streets.
Policy CI 9-2: Maintain design standards for industrial streets that incorporate heavier loads associated with truck operations and larger turning radii to facilitate truck movements.
Policy CI 9-3: Continue to ensure adequate truck access to off-street loading areas in commercial areas.
5.6 AVIATION
Aviation facilities are provided by the Sutter County Airport, which is located between Garden Highway and the Feather River. The airport is owned and operated by Sutter County and currently includes one runway, Runway 17/35, which is 3,040 feet long and 75 feet wide.
The airport is currently used primarily for agricultural aerial-spraying purposes and private use.
Other uses include Flight Instruction, Aircraft Rentals, And Aircraft Sales.
5.7 REGIONAL COORDINATION
The Transportation Element identifies future circulation needs for a long-range planning horizon. Near-term projects are supported by the City’s adopted Capital Improvement Budget, which calls for the use of City General Funds, Development Impact Fees, the City’s Streets and Roads Fund, State and Federal Grants. Longer-term projects will be studied later in greater detail, and funding and implementation sources will be identified. Many of the projects, in order to be funded, must be part of local and regional programs, including the City's Capital Improvement Program, and the Regional Transportation Improvement Program (RTIP). Once a project is in the RTIP, it is available for consideration in the State Transportation Improvement Program (STIP). Other City plans, such as an Active Transportation Plan and Local Road Safety Plan, Safe Routes to School Plan, Highway Safety Improvement Plan, ADA Transition Plan, Local Road Safety Plan, Systemic Safety Analysis Report, are also required to support successful funding applications.
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Figure 5-4: Existing and Future Signalized Intersections
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GOALS, POLICIES, AND IMPLEMENTATION
Goal CI 10-1. Actively participate in local and regional transportation planning.
Policy CI 10-1: Develop and implement action plans for routes of regional significance, in cooperation with regional partners, SACOG, and the State of California.
Policy CI 10-2: Explore alternative circulation network improvements to accommodate regional through-traffic, focusing on regional/arterial street circulation and regional transportation routes.
Policy CI 10-3: Identify the impacts of land use decisions on regional as well as local transportation facilities.
Policy CI 10-4: Support regional air quality objectives through effective management of the City’s transportation system.
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Parks
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Sign at entrance to Gauche Aquatic Park.
Yuba City General Plan Update
Source: Yuba City Department of Parks and Recreation 2023
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Source: Yuba City GIS Data, 2020
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Yuba City General Plan Update
2020
Parkland
Acreage
Target Acres
per 1,000
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Yuba City General Plan Update
Figure 6-1: Recreation Opportunity at School Site
Parks
Figure 6-2: Existing Park Plan
Yuba City General Plan Update
Figure 6-3: Future Parks
Parks
Figure 6-4: Proposed City Trail Map
Yuba City General Plan Update
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Goal PK 1-1. Create a hierarchy of new open spaces that accommodates a diverse range of recreational needs.
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Goal PK 2-1. Develop new parkland to meet the park acreage standards for new residents.
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Specific standards are as follows: Maintain the existing standard of 0.375 acres of Neighborhood / Mini Parks resulting from prior plan standards, together with the forward requirement upon adoption for:
x 1.5 acres of City Neighborhood Park
x 2.0 acres of Specialized Recreation Area / Open Space / Trails x 1.5 acres of Community Parks,
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Goal PK 3-1. Ensure adequate funding for parks and recreation facilities acquisition, development, and maintenance.
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Goal PK 4-1. Ensure that parks in Yuba City are easily accessible to its citizens, including those with physical limitations, and to provide recreational equipment that people of all ages and abilities can use.
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Yuba City General Plan Update
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7 Public Utilities Element
This chapter of the General Plan establishes policies and provisions for public utilities, including water supply, wastewater treatment, and solid waste handling. The provision of adequate public facilities is a critical component to successful implementation of the General Plan.
7.1 WATER SUPPLY AND CONSERVATION
WATER PROVIDERS
The City of Yuba City Public Works Department provides water within the City limits. In 2020, Yuba City had over 19,000 municipal water connections; the City obtains its surface water supply from the Feather River, pursuant to four water supply contracts:
x State Water Resource
Control Board (SWRCB)
License 13855;
x State Water Resource
Control Board Permit
18558;
x North Yuba Water District
(NYWD) Agreement; and
x Department of Water
Resources, State Water
Project.
The City also has access to a
limited water supply from a
groundwater well. A second
groundwater well is
scheduled to be completed in
2024.
Most residents in the Sphere of Influence outside the City limits obtained their water from private wells or the Hillcrest Water Company (HWC), which had approximately 4,600 water service connections in 2001. Yuba City purchased HWC in May 2001 and assumed responsibility for water service to several areas within the Sphere of Influence.
The water service system in the City provides an average of 20 million gallons a day of drinking water through approximately 280 miles of distribution lines.
Old water tower now used as a visual monument for the downtown.
Yuba City General Plan Update
7-2
The City plans for growth in water service through the Water Treatment Plant and Distribution System Master Plan (Master Plan), which is updated regularly to reflect changes in conditions, state law, and demand. The Master Plan¸ is also used in developing impact fees. Table 7-1 shows the projected water demand for the City.
Table 7-1: Water Supply Projections1 (Acre Feet Per Year) Water Supply Sources 2025 2030 2035 2040 2045
Groundwater 2,400 2,400 2,400 2,400 2,400
Surface Water2 23,264 23,264 23,264 23,264 23,264
Total 25,664 25,664 25,664 25,664 25,664
1 Projected supplies are based normal year reasonably available volumes 2 Surface water includes SWRCB License 13855 and Permit 18558, NYWD Agreement, and Department of Water Resources State Water Project
Source: Yuba City Urban Water Management Plan, 2020.
Table 7-1 shows water supply projections per the City’s Urban Water Management Plan for the years 2025 to 2045. The City estimates a total of 25,664 acre-feet of water supply per year.
CONSERVATION
The City’s Municipal Code allows the City Council to declare an emergency condition and institute emergency water restrictions per the Water Shortage Contingency Plan within the adopted Urban Water Management Plan. The plan includes water rationing stages based on water supply contracts and expected annual growth. The City’s Code allows the City to charge penalties for violations of any emergency water restrictions in place at the time.
GOALS, POLICIES, AND IMPLEMENTATION
Goal UT 1-1. Ensure that an adequate supply of water is available to serve existing and future needs of the City and maintain existing levels of water service by preserving and improving infrastructure, replacing water mains as necessary, and improving water transmission facilities.
Policy UT 1-1: Decline requests for extension of water beyond the SOI, except in cases of existing documented health hazards or areas where the City has agreements to provide services.
Policy UT 1-2: Coordinate capital improvements planning for all municipal water service infrastructure with the direction, extent, and timing of growth.
Policy UT 1-3: Establish equitable methods for distributing costs associated with providing water service to development, including impact mitigation fees where warranted.
Goal UT 2-1. Ensure that necessary water supply infrastructure and storage facilities are in place prior to or concurrent with construction of new development.
Public Utilities
7-3
Policy UT 2-1: Evaluate the adequacy of water infrastructure in areas where intensification of land use is anticipated to occur and develop a strategy to implement projects in the Water Supply Master Plan to offset deficiencies in capacity.
Goal UT 3-1. Encourage water conservation with incentives for decreased water use and active public education programs.
Policy UT 3-1: Explore ways to encourage the use of reclaimed water for irrigation and landscaping purposes.
Policy UT 3-2: Utilizing reclaimed water is currently not cost-effective. Should the costs of reclaimed water become more attractive, the City should define a program for encouraging reclaimed water use.
Policy UT 3-3: Continue to implement the City’s guidelines and standards for water conservation, implement State Water Efficiency standards and actively promote use of water-conserving devices and practices in both new construction and major alterations and additions to existing buildings.
7.2 WASTEWATER COLLECTION AND TREATMENT
SEWER SERVICE, 2020
Sanitary sewer service is provided by the City Public Works Department. City residents living in the Tierra Buena district and several other areas rely on septic systems for the treatment of wastewater. According to the City’s 2020 Wastewater Treatment Facility and Collection System Master Plan (WMP), the unincorporated areas of the SOI are expected to be served by the City’s wastewater collection and treatment system. The WMP describes the City’s existing sewage collection system and addresses sewage collection system capacity and operational needs. It also recommends a long-term capital improvement program to provide the facilities necessary to accommodate General Plan buildout.
WASTEWATER DISPOSAL SYSTEM, 2020
The wastewater treatment facility (WTF) has a current average daily flow of approximately 6.5 mgd through a collection system of approximately 173 miles of main pipelines. The wastewater is sent through grit removal, primary sedimentation, clarification, chlorine disinfection, and dichlorination process at the plant. Treated wastewater is discharged to the Feather River through an outfall diffuser. The discharge from the WTF is permitted under NPDES discharge permit (Order No. R5-2019-0017-01) adopted by the Central Valley Regional Water Quality Control Board on February 8, 2019.
PROJECTED NEEDS
Based on the current wastewater system, the City expects to accommodate future growth through 2040 when considering existing and planned infrastructure. The City anticipates expansions to the wastewater system infrastructure will occur as growth occurs, with funding provided through development impact fees. According to the WMP, an estimated average daily water demand of 29.4 mgd is expected in the buildout service area. The buildout area includes
Yuba City General Plan Update
7-4
the SOI area outside of City limits and the Bogue-Stewart Master Plan area. The WTF has a current average daily flow of approximately 6.5 mgd. The WMP identifies potential capacity projects that could be developed if the need arises for increased treatment capacity.
WASTEWATER RECLAMATION
According to the 2020 Urban Water Management Plan, no infrastructure or system currently exists to support recycled water within the City. The City uses only a limited amount of recycled water for processes and irrigation at the WTF. Costs to produce reclaimed water are greater than the cost of freshwater supplies for both agriculture and urban uses. Until these costs are somehow offset or reduced, there is no incentive for potential customers to use reclaimed water.
If the WTF is upgraded to provide disinfected recycled water, the City could identify future uses and develop methods for encouraging recycled water use.
GOALS, POLICIES, AND IMPLEMENTATION
Goal UT 4-1. Ensure that adequate wastewater treatment capacity is available to serve existing and future needs of the City.
Policy UT 4-1: Maintain existing levels of wastewater service by preserving and improving infrastructure, including replacing sewer mains as necessary.
Policy UT 4-2: Evaluate the adequacy of sewer infrastructure in areas where land use intensification is anticipated to occur and develop a strategy to address potential deficiencies in capacity.
Policy UT 4-3: Coordinate capital improvements planning for all sewer service infrastructure with the direction, extent, and timing of growth.
Policy UT 4-4: Decline requests for sewer extensions beyond the SOI, except in cases of existing documented health hazards and in areas where the City has prior agreements to provide services.
Policy UT 4-5: Establish equitable methods for distributing costs associated with providing wastewater services to development, including impact mitigation fees where warranted.
7.3 SOLID WASTE MANAGEMENT AND RECYCLING
SOLID WASTE DISPOSAL VOLUMES AND TRENDS
Franchised solid waste collection and disposal for Yuba City is provided by Recology Yuba-Sutter.
Yuba City has an exclusive franchise agreement with Recology to provide refuse collection services to businesses and residences in the City. Recology Ostrom Road provides solid waste disposal services to the City. City residences also have access to transfer stations in Marysville and Brownsville.
Public Utilities
7-5
REUSE AND RECYCLING
To guide the waste diversion process, the California Integrated Waste Management Act of 1989 promotes an integrated solid waste management approach which establishes the following hierarchy of goals: (1) source reduction; (2) recycling and composting; (3) environmentally safe transformation and disposal of wastes. The statewide mandated goal for waste diversion is 50 percent. Recology Yuba-Sutter currently offers hazardous waste collection, electronic disposal, curbside recycling, and used oil recycling.
On October 1, 2001, Regional Waste Management Authority (RWMA) implemented one of the most liberal curbside recycling programs in the state, to help reach the 50 percent goal by the end of 2003. Separate bins for organic, greenwaste, recyclable materials, and nonrecyclable waste were distributed to households throughout the region. All paper (including magazines and cereal boxes), glass, plastic (#1 through #7), and aluminum products and tin cans were accepted by the recycling system in a single stream (combined bin). Several redemption recycling centers were distributed within the City.
In October 2014, California passed Assembly Bill 1826 (AB 1826), mandates all businesses and commercial establishments, including multi-family units, to arrange for organics recycling and hauling. Organic waste is defined as food waste, green waste, landscaping and pruning waste, non-hazardous wood waste, and food soiled paper waste that is mixed with food waste. In addition, SB 1383 aims for a 75% reduction in organic wastes by 2025 aimed to tackle climate change.
FUTURE DEMAND
According to California Department of Resources Recycling and Recovery (Cal Recycle) solid waste information system (SWIS), the Ostrom Road Landfill has a remaining capacity of 39,223,000 cubic yards as reported in 2023. The Ostrom Road Landfill has an expected life span to the year 2066.
GOALS, POLICIES, AND IMPLEMENTATION
Goal UT 5-1. Meet the City’s solid waste disposal needs, while maximizing opportunities for waste reduction and recycling.
Policy UT 5-1: Continue contracting for garbage and recycling collection services.
Policy UT 5-2: Encourage existing commercial businesses and residential development to install recycling receptacles on their premises.
Policy UT 5-3: Require builders to incorporate interior and exterior storage areas for recyclables and convenient access to recycle areas into new commercial and residential remodeled buildings and encourage remodeled buildings (both residential and commercial) to make recycling activities more convenient for those who use the buildings.
Policy UT 5-4: Expand recycling efforts in multi-family residential and commercial projects, and continue to encourage recycling by all residents.
Yuba City General Plan Update
7-6
Goal UT 6-1. Manage solid waste so that State diversion goals are exceeded and the best possible service is provided to the citizens and businesses of Yuba City.
Policy UT 6-1: Comply with State requirements for proper handling and storage of solid waste and recyclables and diversion of solid waste from landfills.
Goal UT 7-1. Continue public education programs about waste reduction, including recycling, yard waste, wood waste, and household hazardous waste.
Policy UT 7-1: Provide and promote opportunities to reduce waste at home and in businesses, through public education information.
Policy UT 7-2: Obtain input from the public to ensure that solid waste programs effectively address community needs and issues.
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Picture of Yuba City Fire station at 824 Clark Avenue.
Yuba City General Plan Update
8-2
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Safety
8-3
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Yuba City General Plan Update
8-4
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Safety
8-5
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Yuba City General Plan Update
8-6
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8-7
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Yuba City General Plan Update
8-8
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Geology and Soils
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8-9
Figure 8-1: Landslide Susceptibility
Yuba City General Plan Update
8-10
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Volcanic Activity
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Safety
8-11
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Likelihood of Future Occurrence
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Yuba City General Plan Update
8-12
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POLICIES
Goal SF 1-1. Minimize risks of property damage, personal injury, and loss of life posed by geologic and seismic hazards.
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Safety
8-13
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The southwest corner of the City is underlain by expansive soils that must be
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Yuba City General Plan Update
8-14
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Safety
8-15
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Yuba City General Plan Update
8-16
Figure 8-2: Flood Zones
Safety
8-17
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Yuba City General Plan Update
8-18
Figure 8-3: Dam Inundation Zones
Safety
8-19
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Yuba City General Plan Update
8-20
Figure 8-4: Levee Protection Zone
Safety
8-21
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Yuba City General Plan Update
8-22
Climate Change and Flooding
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POLICIES
Goal SF 2-1. Minimize the potential for loss of life, personal injury, and damage to property and public facilities resulting from flood and inundation risk.
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Safety
8-23
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ʹǦǣ
Ǥ All develop within the floodplain is required to seek a floodplain development permit.
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ʹǦͳʹǣ
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ʹǦͳ͵ǣ
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ʹǦͳͶǣ
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Yuba City General Plan Update
8-24
ʹǦͳͷǣ
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ʹǦͳǣ
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Safety
8-25
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Yuba City General Plan Update
8-26
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Safety
8-27
Figure 8-5
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Figure 8-6
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Yuba City General Plan Update
8-28
Figure 8-5: Wildland-Urban Interface Zones
Safety
8-29
Figure 8-6: Historic Wildfire Burn Areas
Yuba City General Plan Update
8-30
Likelihood of Future Occurrence
Ǥ
ǡǡ
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Climate Change and Wildfire
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POLICIES
Goal SF 3-1. Minimize adverse impacts due to urban and wildfires.
͵Ǧͳǣ ǡ ǡ
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͵Ǧʹǣ
ǡǡǡ
Ȁ
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͵Ǧǣ Ǧ
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Safety
8-31
͵Ǧǣ Ǧ
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Yuba City General Plan Update
8-32
Ǥ ǡ
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Likelihood of Future Occurrence
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Safety
8-33
Climate Change and Agriculture and Ecosystem Hazards
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POLICIES
Goal SF 4-1. Ensure that natural agricultural resources within and adjacent to the city are resistant to pests and diseases to the extent possible and minimize impacts from invasive species to aquatic ecosystems.
ͶǦͳǣ
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Yuba City General Plan Update
8-34
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Safety
8-35
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Yuba City General Plan Update
8-36
Figure 8-7: Evacuation-Constrained Areas
Safety
8-37
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ǡǡ
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POLICIES
Goal SF 5-1. Ensure that the City is prepared for and able to respond to emergency situations and disasters with changing future conditions.
ͷǦͳǣ Ǧ
ǡ ǡ
Ǥ
Yuba City General Plan Update
8-38
ͷǦʹǣ
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ͷǦ͵ǣ Ǧ ǡ ǡ ǡ
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Safety
8-39
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