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Home My WebLink About8.1 West Dub GPA StudyCITY CLERK FILE # 420-30 AGENDA STATEMENT CITY COUNCIL MEETING DATE: September 19, 2000 SUBJECT: PA 99-003 Western Dublin Draft General Plan Amendment Study- Study Session (Report Prepared by Anne Kinney, Associate Planner) ATTACHMENTS: 1. Draft West Dublin General Plan Amendment Study RECOMMENDATION:~Cy' 2. Receive staff presentation Direct staff to prepare the Final General Plan Amendment after the November 2000 Election. FINANCIAL STATEMENT: None BACKGROUND: On February 16, 1999, the City Council directed staff to initiate a Western Dublin General Plan Amendment Study to consider establishing an urban limit line along the western city boundary, pending the vote on the Urban Limit Line measure; and to consider appropriate land use designations and policies related to development within the Western Extended Planning Area. The City Council further requested that, as part of the General Plan Amendment Study, a western Dublin Open Space Preservation Study be conducted to determine feasible options for open space acquisition and preservation within the Western Extended Planning Area. On February 1, 2000, the City Council adopted an interim ordinance extending the moratorium on the approval of general plan amendments for the Western Extended Planning Area pending the completion of the general plan amendment study for the area. This moratorium expires February 17, 2001. On April 18, 2000, the City Council directed staff to complete the Draft General Plan Amendment Study prior to the November election. Staff has completed the Draft Study, which is attached as Attachment 1. The Draft Open Space Study was presented to the City Council on June 20, 2000. This study was used as background information for the Western Dublin General Plan Amendment Study. At this Public Meeting, the City Council directed staff to prepare an Open Space Preservation Program for the eastern portion of the Western Extended Planning Area. The program would detail how an open space strategy would be implemented in the area. The program would also study the specifics of the area topography and natural resources to identify precisely where open space is appropriate and areas that could accommodate future development. The City Council directed staff to prepare and present to the Council, the scope of work for the study and a program to involve public participation. The Open Space Implementation study is to be completed by January 2001. g:\PA 99-003\CC sr gpa study session COPIES TO: In-House Distribution ITEM NO. DESCRIPTION: The purpose of the General Plan Amendment Study is two-fold. Firstly, to identify appropriate amendments to the Dublin General Plan to establish an urban limit line along the western city boundary, in the event the Urban Limit Line measure is adopted by voters in the upcoming November election. Secondly, to consider appropriate future goals and policies for the Westem Extended Planning Area, in the event the Urban Limit Line measure fails at the ballot. Chapter I of the study provides background information on the purpose of the study and the Western Extended Planning Area. Chapter II reviews and analyzes existing planning policy affecting the study area including the Dublin and Alameda County General Plans. Chapter III, reviews constraints and opportunities to development that exist within the study area. This discussion utilizes documents prepared for the West Dublin Specific Plan (1992) and the Draft Open Space Study, dated June 2000. Chapter IV outlines amendments to the Dublin General Plan that would be necessary in order to implement the Urban Limit Line measure. Finally Chapter V, outlines draft amendments to the Dublin General Plan that should be considered if the Urban Limit Line ballot measure fails. The precise amendments to be considered if the Urban Limit Line ballot measure fails would be determined when the Open Space Implementation Study is completed in January 2001. This study will identify specific locations within the Western Extended Planning Area suitable for open space uses and areas potentially suitable for development. Any general plan amendment the City Council wishes to adopt would be accomplished after the election, depending on the election results. If the Urban Limit Line ballot measure passes, staff will return to City Council with the Final General Plan Amendment. If the Urban Limit Line ballot measure fails, staff will return to City Council with the Final General Plan Amendment after the completion of the Open Space Implementation Study. This General Plan Amendment will reflect the results and findings of the Open Space Implementation Study for the Western Extended Planning Area. CONCLUSION: Staff recommends that the City Council: 1 ) receive staff presentation; and 2) direct staff to complete the final General Plan Amendment after the election results are known and return to City Council for adoption of appropriate amendments in the event the Urban Limit Line ballot measure passes or fails. DRAFT WEST DUBLIN GENERAL PLAN AMENDMENT STUDY PA 99-003 Prepared by: City of Dublin Planning Department September 2000 ATrA~ 1 TABLE OF CONTENTS I. INTRODUCTION ...................................................................................................................3 II. OVERVIEW OF EXISTING PLANNING POLICY AFFECTING THE WESTERN EXTENDED PLANNING AREA ..........................................................................................7 III. DEVELOPMENT CONSTRAINTS AND OPPORTUNITIES WITHIN THE WESTERN EXTENDED PLANNING AREA ................................................................... 16 IV. DRAFT GENERAL PLAN AMENDMENT - BALLOT MEASURE PASSES ............. 21 V. DRAFT GENERAL PLAN AMENDMENT - BALLOT MEASURE FAILS ............. 29 Figure 1: Figure 2: Figure 3: Figure 4: Figure 5: Figure 6: Western Extended Planning Area Extended Planning Area, Dublin General Plan Proposed General Plan Amendment, Urban Opportunity Area Proposed General Plan Amendment, Urban Opportunity Area, Western Extended Planning Area Draft Open Space Study: Western Extended Planning Area, Zones Draft General Plan Map Amendment: Ballot Measure Passes I. INTRODUCTION Purpose On February 16, 1999, the City Council directed staff to initiate a General Plan Amendment Study for those properties located within the City of Dublin Sphere of Influence west of the existing City Limits. The purpose of the General Plan Amendment Study is two-fold. Firstly, to consider appropriate amendments to the Dublin General Plan to establish an urban limit line along the western city boundary, in the event the Urban Limit Line measure is adopted by voters in the upcoming November elections. Secondly, to consider appropriate land use designations and policies related to future development within the Western Extended Planning Area, in the event the Urban Limit Line measure fails at the ballot. The City Council further requested that, as part of the General Plan Amendment Study, a western Dublin Open Space Preservation Study be conducted to determine feasible options for open space acquisition and preservation within the Western Extended Planning Area. The Draft Open Space Study was presented to the City Council on June 20, 2000. At this Public Meeting, the City Council directed staff to prepare an Open Space Preservation Program for the eastern portion of the Western Extended Planning Area. The program would detail how an open space strategy would be implemented in the area. The program would also study the specifics of the area topography and natural resources to identify precisely where open space is appropriate and areas that could accommodate future development. The City Council directed staff to prepare and present to the Council, the scope of work for the study and a program to involve public participation. The Open Space Implementation study is to be completed by January 2001. The scope of this General Plan Amendment Study is as follows: Prepare a Draft General Plan Amendment to establish an Urban Limit Line in the event that the ballot measure before the voters in the November passes. Prepare a Draft General Plan Amendment in the event that the ballot measures fails. The General Plan Amendment will consider appropriate future goals and policies for the Western Extended Planning Area. Planning Area: The Western Extended Planning Area was first defined and adopted by the City as part of the Dublin General Plan Extended Planning Area in 1985. The boundary of the Western Dublin Planning Area for the purposes of this General Plan Amendment Study is essentially consistent with the boundaries shown in the General Plan except for the recently annexed Schaefer Ranch property. Refer to figure 1, Western Extended Planning Area. The Planning Area comprises approximately 3,100 acres and is located on the westem edge of the City of Dublin, between the communities of Dublin, San Ramon and Castro Valley. The Planning Area is located outside the City limits within unincorporated Alameda County, but within the City' s Sphere of Influence. The Planning Area is characterized by existing rangeland, with a series of ridges and canyons, considerable woodland, riparian areas and a number of rural residences. A row of PG&E power lines cuts through the central part of the area in a northeast- southwest direction. Steep slopes are predominant in the area, with approximately 55% of land with over 30% slopes and only 6% of the area with slopes less than 10%. The West Dublin area forms part of prominent ridgelands that extend from Contra-Costa to Santa Clara counties which separates the San Ramon-Livermore-Amador Valleys from the San Francisco Bay plain. The majority of the Planning Area is privately owned with the exception of approximately 160 acres owned by the East Bay Regional Park District and .5 acres owned by Dublin San Ramon Services District. There are 15 separate landowners and about 67% of the land is held by four owners. The largest parcel is 598 acres and the smallest is less than a fourth-acre. Planning Background: Planning efforts for Western Dublin began in 1989, in response to proposals to development the area. The City prepared a General Plan Amendment, Specific Plan and Environmental Impact Report for the development of 3,206 residential units on 727 acres, a 175-acre golf course, country club facilities, three commercial centers and public uses to include a school, park and fire station. The remainder of the area was to be reserved as open space. The Environmental Impact Report was approved and certified in 1992. The General Plan Amendment and West Dublin Specific Plan was subsequently rejected by the voters of Dublin in a City referendum. In 1996, a General Plan Amendment was approved for the Schaefer Ranch Project, a property located within the Western Extended Planning Area to allow 474 residential units, commercial and open space uses on approximately 500 acres of land. A large portion of the site approximately 161 acres was identified to be dedicated to East Bay Regional Park District for a regional park. An EIR was prepared and certified for the Schaefer Ranch project. In 1997, Alameda County Local Area Formation Commission approved the annexation of this property to the City of Dublin. The City Council directed staff to work on the Urban Opportunity Area- General Plan Amendment in the fiscal year 1997/8. The purpose of this Amendment was to identify areas within the City sphere of influence where orderly and logical growth could occur without major impacts to the environment, or to public services and infrastructure. An area of potential urban development was identified within the Western Extended Planning Area. However, due to a large number of concerns voiced by property owners and citizens regarding any future development within the Western Hills, the Urban Opportunity Area was not adopted for Western Dublin. In 1998, a group of residents of Dublin concerned about potential development in the Western Extended Planning Area, proposed a land use initiative for the purpose of controlling growth west of the City limit line. The City Council, appointed a committee comprised of council members, residents and staff to discuss the proposed initiative and present the results of the Committee's work to the Council. The Committee held nine public meetings to review various aspects of the proposed Initiative as well as the potential of an Urban Limit Line approach. Extensive public comment during the review process was received from concerned property owners and citizens both within the City and the Westem Extended Planning Area. Consistent with the recommendations of the Committee, on February 16, 1999, the City Council placed an Urban Limit Line measure on the November 2000 ballot. If Dublin voters approve the Urban Limit Line measure, no development could occur within the Western Extended Planning Area west of the city limits for a period of thirty years unless otherwise approved by the voters of Dublin. As stated above the City Council also initiated a General Plan Amendment Study for the Western Dublin Extended Planning Area. In addition, the City Council approved a moratorium on approval of general plan amendments for the study area pending the completion of this General Plan Amendment Study. The moratorium expires on February 17, 2001. II. OVERVIEW OF EXISTING PLANNING POLICY AFFECTING THE WESTERN EXTENDED PLANNING AREA Dublin General Plan The Dublin General Plan was originally adopted in 1985 and amended from time to time since then, to constitute a guide for the day-to-day physical development decisions that shape the social, economic and environmental character of the City and the extended planning areas. The General Plan includes site-specific policies for the central part of Dublin (the Primary Planning Area) and for large areas east of Camp Parks Military Reserve (the Eastern Extended Planning Area) and west of the City limit line, Hansen Ranch and California Highlands residential developments (the Western Extended Planning Area). The Western Extended Planning Area consists of approximately 5 square miles located west of the City limit line and Hansen Ranch/California Highlands residential developments, between Dublin, Castro Valley and San Ramon. The Western Extended Planning Area includes the recently incorporated Schaefer Ranch property, however this property is not included in this study. The Western Extended Planning Area is composed of ridgelands covered primarily by grasslands with oak woodlands on steep slopes and winding canyons. This area is generally referred to as the Western Hills The Dublin General Plan designates Residential/Open Space land uses (refer to figure 2, Extended Planning Area, General Plan Map) for the Western Extended Planning Area with the exception of Schaefer Ranch. The General Plan establishes policies specifically geared to preserving the unique values of this area and to determine areas suitable to accommodate future development. The General Plan states that it is the "intent of the City of Dublin to balance open space goals with housing and recreational needs in the Western Extended Planning Area". This is to be accomplished through the following means: · an open space corridor on the main ridgeline will be preserved with a regional trial extending across the site · key woodland areas and other important features will be protected · development will be clustered for increased land efficiency. Within these sectors of clustered development intensive grading and selective tree removal will be permitted, although proposed development shall respect natural features wherever possible The guiding policy for future residential development within the Western Extended Planning Area states that development shall be integrated with the natural setting and cluster development will be required in areas with fewer constraints. The implementing policies are as follows: 1. The location, extent and density of residential development will be determined when municipal services can be provided and through general plan refinement studies. 2. Approval of residential development in the Western Extended Planning Area will require determination that · Utilities and public safety services will be provided at approved standards without financial burden to Dublin residents and businesses. im Proposed site grading and means of access will not disfigure the ridgelands as viewed from areas of existing development in Dublin. Any necessary grading and construction shall be planned so as to protect visual qualities. · Timing of development will not result in premature termination of viable agricultural operations on adjoining lands. The fiscal impact of new residential development in the Western Extended Planning Area supports itself and does not draw upon and dilute the fiscal base of the remainder of the City. The Land Use and Circulation: Parks and Open Space Element of the General Plan also contains a number of specific policies for the Western Extended Planning Area, including Open Space for Preservation of Natural Resources and for Public Health & Safety, Agricultural Open Space and Open Space for Outdoor Recreation. Open Space for Preservation of Natural Resources and for Public Health & Safety Development generally shall be confined to areas where slopes are under thirty percent as part of an overall cluster development concept on approved development plans. Within projects proposing clustered development and ancillary facilities in the Western Extended Planning Area, land alteration on slopes over thirty percent may be considered where the following conditions are present: · Public health and safety risks can be reduced to an acceptable level. · Proposed land alteration would be necessary to achieve a basic public need, such as housing, recreation, street access or public facilities. · Long-term visual qualities can be maintained for residents of Dublin and nearby communities. Existing large stands of woodland and coastal scrub in the Western Extended Planning Area shall be protected wherever possible. Grassland sites shall be considered for development in preference to native shrub and woodland areas. Agricultural Open Space Lands currently in the Williamson Act Agricultural Preserve can remain as rangeland as long as the landowner(s) wish to pursue agricultural activities. The City does not support cancellation of Williamson Act contracts, unless some compelling public interest would be served. According to the Open Space Study, dated June 2000, there are currently two properties within the planning area that are under Williamson Act Contract, totaling 393 acres. Open Space for Outdoor Recreation Guiding policies for open space for outdoor recreation will: · Provide a north-south trail link across the Planning Area, as part of a regional trail network Create a local trail network which links large areas of permanent open space, while providing convenient access from nearby residential areas. Maximize visual 9 exposure to open space and provide multiple local physical access poims to increase public enjoyment of open space · Provide active recreation facilities to serve neighborhood residems. The Land Use and Circulation: Circulation and Scenic Highways Elemem of the General Plan contains policies to provide an efficient circulation system for the Western Extended Planning Area, including linkage to the rest of the City, alternate transportation modes, and sensitivity to environmental concerns. The Plan states that primary access to the Schaefer Ranch property will be via an extension of Dublin Boulevard. The remainder of the area shall have primary access via Eden Canyon Road. In addition, the Plan designates Interstate 580 as a Scenic Highway. The Dublin General Plan, Conservation Element also comains specific policies regarding Stream Corridors and Riparian Vegetation, Erosion and Siltation Control, Oak Woodlands, Agricultural Lands and Open Space Maintenance/Management. The Environmental Resources Management Element addresses seismic safety. Stream Corridors and Riparian Vegetation The Western Extended Planning Area comains extensive areas of riparian vegetation along the stream corridors in the area, including Hollis Canyon and Martin Canyon Creeks. The Plan establishes policies to protect riparian vegetation as a protective buffer for stream quality and for its value as a habitat and aesthetic resource. In addition, there are policies to promote access to stream corridors for passive recreational use and to allow stream maintenance and improvements as necessary, while respecting the privacy of owners of property abutting stream corridors. Erosion and Siltation Control The guiding policies of erosion and siltation comrol are to maimain natural hydrologic systems by containing any net increase of runoff onsite or with approved offsite measures and to regulate grading and development on steep slopes, with special concern for potential problems of erosion and siltation. Oak Woodlands Most of the oak woodland in the Dublin area is concentrated in the Westem Extended Planning Area. The Guiding Policies emphasize the preservation of oak woodlands by requiring development to be clustered in grassland areas wherever possible, in order to protect existing trees. The Plan states "However, as part of comprehensive planning for development in this area, some oak woodland may need to be removed. Removal of oaks shall be allowed only after all feasible site planning efforts have been made to preserve trees". The Plan goes on to state that any removed trees shall be replaced, and existing trees to remain shall be protected. In December 1999, the City Council adopted a Heritage Tree Ordinance to protect and preserve Heritage Trees within the City. Any tree removal program in Western Dublin shall comply with the requirements of this Ordinance. Agricultural Lands The guiding policy regarding agricultural lands is to prevent the premature conversion of these lands to urban uses. 10 Open Space Maintenance/Management The Plan states that "in the Western Extended Planning Area, substm~tial areas of open space will be designated for open space". The guiding policy requires open space management and maintenance programs for open space areas be established through subdivisions and planned development districts. Programs 'should include standards to ensure control of potential hazards; appropriate setbacks; and management of the open space so that it produces a positive and pleasing visual image. Seismic SaJ~ty Geologic hazards within the planning area include downslope movement (landslides) and earthquake fault surface rupture. The General Plan states that "Geologic hazards shall be mitigated or development shall be located away from geologic hazards in order to preserve life, protect property, and reasonably limit the financial risks to the City of Dublin and other public agencies that would result from damage to poorly located public facilities". Implementation policies include structural and grading requirements and geotechnical analysis. Proposed General Plan Amendment - Urban Opportunity Area (PA 98-029) The City Council directed staff to work on the Urban Opportunity Area-General Plan Amendment as a high priority project for the Fiscal Year 1997/8. The purpose of this Amendment was to identify and graphically represent areas within the Dublin City limits and adopted sphere of influence where orderly and logical growth could occur without major impacts to the environment, or to public services and infrastructure. The proposed amendment identified an area of urban development potential referred to as the "Urban Opportunity Area". The Urban Opportunity Area represented a long-time commitment by the City to manage growth within the current city limits and the Eastern and Westem Extended Planning Areas and identified where development is expected to occur over the next 20 -25 years. The Urban Opportunity Area in Western Dublin was identified as the geographic area located below the 740-elevation line. This botmdary was chosen because development beyond this point would result in the expansion of water service pressure zones, except for already approved projects; an increase in reservoir sizes beyond what has been already constructed and/or approved; or major impacts to visual quality, biology, geology, traffic and circulation, and areas which have slopes over thirty percent. Refer to figures 3 and 4, Proposed General Plan Maps for the UOA. The General Plan Amendment proposed the following policies to implement the Urban Opportunity Area in the Western Extended Planning Area: The City shall preclude development beyond the Urban Opportunity Area (740 elevation) that would result in: 1 ) the expansion of water service pressure zones, except for already approved projects, 2) an increase in reservoir sizes beyond what has been constructed and/or approved, as of date __., the effective date of the Urban Opportunity Area amendment, or 3) major impacts to visual quality, biology, traffic and circulation, and areas which have slopes over thirty percent. Urban land uses may be approved for areas beyond the present Urban Opportunity Area only when land use information is available covering the potential impacts associated with natural resources, public health and safety, visually sensitive resources, biologically 11 ./"": '1 t sensitive habitat areas, infrastructure (including roadway access), future land uses and other issues, as reviewed through the General Plan Amendment. For areas that are below the 740 foot elevation, the City shall not approve development on slopes over thirty percent and/or where visual, biological, water service, flood control, geologic and traffic and circulation constraints exist. In 1998, the City Council replaced the term "Urban Opportunity Area" with "Development Elevation Cap" and adopted the .proposed General Plan Amendment for the Eastern Dublin Extended Planning area. However, due to the large number of concerns voiced by property owners and citizens regarding any future development within the Western Hills, the "Urban Opportunity Area" for the Western Extended Planning Area was not adopted. Alameda County General Plan The Western Extended Planning Area is located within unincorporated Alameda County. The eastern portion of the Extended Planning area is located within the boundary of the East County Area Plan and the western portion of the Extended Planning Area is located within the Castro Valley Plan. The Eden and Pleasanton Township boundary, as shown on the Alameda County Assessor's maps bisects the Western Extended Planning Area in a north-south direction and generally serves as the boundary between the two Area Plans. Both plans are a part of the Alameda County General Plan. East County Area Plan (ECAP), adopted 1994 The purpose of the East County Area Plan is to present a clear statement of the Connty's intent concerning future development and resource conservation within the East County area to the year 2010. The East County encompasses 418 square miles of eastern Alameda County and includes the cities of Dublin, Livermore, Pleasanton, and a portion of Hayward as well as surrounding unincorporated areas. The western boundary of the East County Area Plan extends along the Pleasanton/Dublin Ridgeline (generally the boundary between the Pleasanton and Eden Townships) which bisects the Westem Dublin Extended Planning Area. The East County Area Plan contains several policies pertaining to the Western Hills relating to Open Space, Agricultural and Sensitive Viewshed goals. These policies are as follows: Policy 69: The County shall work cooperatively with the cities of Pleasanton and Hayward, the Castro Valley community, the East Bay Regional Park District (EBRPD), and landowners to retain Pleasanton Ridgelands as permanent open space and reserve a regional trail corridor connecting Sunol with the West Dublin hills. Accordingly, the County shall oppose city sphere of influence expansions and annexations outside the Urban Growth Boundary in this area for purposes of urban development. Policy 70: The County shall encourage the City of Dublin to designate West Dublin for agricultural or open space uses to serve as a community separator and to reserve a regional trail corridor connecting the San Ramon westside hills with Pleasanton Ridge, consistent with the East County Area Plan. Policy 71: The County shall recognize West Dublin as a valuable open space buffer separating the community of Castro Valley from the East County planning area. The County shall 14 encourage the City of Dublin to retain this area as open space to be consistent with the County's designation of this area as "Large Parcel Agriculture". Policy 106: The County shall preserve the following major visually sensitive ridgelines largely in open space: The ridgelines of Schaefer, Shell, Skyline, Oak and Divide Ridges west of Dublin and the ridgelines above Doolan Canyon east of Dublin. Policy 108: The County shall preserve community separators largely in open space in the following locations: The area west of Dublin which separates the communities of Dublin and Castro Valley. The East County Area Plan designates the land area west of the Dublin City limit line as "Large Parcel Agriculture". The designation allows for low-intensity agriculture and grazing on 100- acre minimum parcel size. One single-family residence is permitted per parcel. Castro Valley Plan, adopted 1985.' The purpose of the Castro Valley Plan is to serve as a general policy guide for public and private decisions affecting the development of the Castro Valley area. The Castro Valley Plan identifies two distinct subareas within the Plan: the Castro Valley Urban Area and those areas outside the Urban Area. The western portion of the Western Extended Planning Area is designated as being outside of the Urban Area. Principal policy 1.1 states that 'tUrban development outside the defined Castro Valley Urban Area should not be permitted except where it is required to meet clearly demonstrated, compelling social, economic, and/or environmental objectives and where no alternative locations are available". The Plan states that lands outside the Castro Valley Urban Area will continue to be zoned for appropriate open space uses. In addition, privately owned open space lands outside the urban area should be included in Agricultural Preserves and these lands should be encouraged to enter into and/or remain in Williamson Act contracts. Key Policy Issues for the West Dublin General Plan Amendment Study Area: · Balance open space goals with housing and recreational needs · Preservation of open space corridor on main ridgeline · Preservation of the area as an open space buffer separating the communities of Castro Valley, San Ramon and Dublin · Protection of natural resources: oak woodland; stream corridors · Maintain slopes over 30 per cent as open space · Consider residential development on moderate slopes, in areas where adequate urban services can be provided · Preserve visual qualities of hills · Protect viable agricultural operations · Urban services shall be provided to new development without financial burden to Dublin residents and businesses 15 III. DEVELOPMENT CONSTRAINTS AND OPPORTUNITIES WITHIN THE WESTERN EXTENDED PLANNING AREA One of the main objectives of this General Plan Amendment Study is to determine appropriate land uses and level of future development for the West Dublin hills. The Environmental Impact Report prepared for the West Dublin Specific Plan analyzed the environmental conditions of the planning area including geology and soils, vegetation and wildlife, visual and cultural resources. The description of the environmental conditions has shown that the area contains a number of unique topographic, biotic and visual resources. Criteria utilized to identify opportunities and constraints for future development within the western hills include existing general plan policies, geotechnical conditions, extension of public utilities and services, presence of significant natural and visual resources. The Dublin General Plan identifies various policies relating to the Western Extended Planning Area. These policies can be considered as either representing constraints or opportunities to future development. These policies are as follows: Constraints: · Proposed site grading and means of access will not disfigure the ridgelands · Timing of development will not result in premature termination of viable agricukural operations on adjoining lands · Maintain slopes predominantly over 30% as permanent open space for public health and safety · Preserve oak woodlands, riparian vegetation and natural creeks as open space for their natural and aesthetic value · Prevent premature urbanization of agricultural lands · Geologic hazards shall be mitigated or development shall be located away from geologic hazards · Western sectors of the Western Extended Planning Area shall have primary access via the Eden Canyon Interchange · Provision of adequate urban services Opportunities: · Residential development may be considered on moderate slopes as part of an overall cluster development concept within grassland areas wherever possible · Within areas of clustered development, intensive grading and selective tree removal will be permitted, although proposed development shall respect natural features wherever possible The Draft Open Space Study determined that based on the existing planning area topography and natural resources, there are two significant subareas within the Western Extended Planning Area; 1 ) the area located between the Dublin City Limits and Skyline Ridge (the Eastern Zone); and 2) the area located between Eden Canyon Road and Skyline Ridge (the Western Zone) as shown on figure 5. Based on the review of existing planning documents including background reports prepared for the West Dublin Specific Plan Environmental Impact Report, the proposed General Plan Amendment for the Urban Opportunity Area and the Draft Open Space study, the following 16 / / / '~ / / / / / Constraints and Opportunities for future development exist within each of the subareas outlined above. Eastern Zone The Eastern Zone comprises approximately 939 acres and is bounded on the west by the Skyline Ridge (major north/south scenic ridge ending in Donlon Point), on the east by the City Limits, on the noah by the Divide Range along the Alameda / Conira Costa County Line and on the south by Hansen Ranch and Schaefer Ranch. The Skyline Ridge dominates the area with elevations ranging up to I300 feet. Two hills each at a 1000 feet form Clark Ridge close to the City limits. Areas of woodland and coastal scrub lie between the ridge and hills and a significant portion of the area has slopes over 30 percent. Most of this Zone is used for cattle grazing and ranching operations. Summary of Constraints · Deep seated landslides run in a north-west direction stretching from an area south of Brittany Lane towards the Skyline Ridge · Steep-slopes over 30% · Visually significant hillsides and ridges: the Skyline and Clark ridges dominate the area and are visible from west Dublin neighborhoods, central Dublin and surrounding areas · Sensitive vegetation (oak woodlands and coastal scrub) · A proposed regional trail traverses the spine of the Skyline Ridge · The area serves as a community separator (greenbelt) between Dublin, San Ramon and Castro Valley · Lack of urban utilities and services · Areas above 740-foot elevation ate outside of the existing water service pressure zone Summary of Opportunities · Portions of the area are below the 740 elevation including an area south of Brittany lane and northwest of Creekside Drive · City services could be extended from the City limits · The area could be accessed from three existing city streets Development in this area could only be considered if it was sited to avoid landslide areas, slopes exceeding 30 percent, sensitive vegetation and visual resources. In addition, the provision of adequate public and infrastructure is required to accommodate any future residential development. Western Zone The Western Zone comprises approximately 2, 164 acres and is bounded on the west by Eden Canyon Road, on the east by the Skyline Ridge, on the north by the Divide Ridge and the Alameda / Contra Costa County Line and on the south by Schaefer Ranch, and Interstate 580. The area is dominated by the Divide Ridge with elevations ranging up to 1600 feet. Two secondary ridges branch off of the Divide Ridge in a noaheast to southwest direction with elevations up to 1000 feet. The major canyons in this zone consist of Eden Canyon which forms ~he westerly boundary and Hollis Canyon a roughly east-west canyon through the central part of this zone. A row of PG&E power lines transverse the area in a northeast to southwest direction. 18 The remainder of the Western Zone has steep slopes over 30 percent, several deep-seated landslides, and a few canyons under 750-foot elevation line. A significant portion of this Zone is used for cattle grazing and ranching operations. There are a number of existing rural residences in the southwest comer of the zone. Two properties totaling approximately 393 acres are under Williamson Act Contract. Currently, Eden Canyon Road provides the only access to this area. Summary of Constraints: · Sensitive vegetation (oak woodland, coastal scrub, riparian habitat) · Steep-slopes over 30% · Deep-seated landslides · Visually significant hillsides and ridges (the Divide, Oak, North, Machando, Shell and Philip Ridges are visible from 1-580 and surrounding communities · Majority of canyons over 750-foot elevation · A row of power lines transverse the area in a northeast to southwest direction · Two properties are currently under Williamson Act Contract · Area is more oriented towards Castro Valley than Dublin, since schools and other urban services are provided by unincorporated Castro Valley · Eden Canyon Road provides the only access to this area · Lack of urban utilities and services Summary of Opportunities: · Continue large parcel rural-residential/agricultural patterns of development Summary of Findings and Recommendations of the Draft Open Space Study, dated June 2000 The purpose of the Open Space study is to consider options for permanently preserving open space within the Western Hills and review methods for compensating landowners who could be affected by open space preservation in the area. The report has been prepared by City Consultant, Economic & Planning Systems. The study involved the review and assembly of City data and policy documents, physical evaluation of the Study Area, market review and land value analysis, and assembly and evaluation of potential open space preservation techniques and funding mechanisms. In addition, two public workshops were held regarding the study. This General Plan Amendment study is primarily concerned with the findings and recommendations of the Open Space study in terms of identifying areas within the Western Hills that are appropriate for open space preservation and areas potentially suitable for future development. The full text of the Draft Open Space study is available at the Planning Department, City Hall and is incorporated herein by reference. As described in the previous section, the Draft Open Space study refers to the Western Extended Planning Area as containing two distinct subareas: the Eastern and Western Zones. Eastern Zone: The Draft Open Space study identifies three open space preservation objectives for this zone: 1 ) Protection of ridges and hillsides visible from the existing Dublin neighborhoods 2) Protection of ridges tops and steep slopes from development 19 3) Completion of the East Bay Regional Park District: Dublin Open Space Regional Preserve and the regional trail linkages in the Calaveras Ridge Trail Open Space strategies proposed include: 1 ) Transfer of Development Credit (TDC) program; 2) Outright fee acquisition of 150 acres for the for the EBRPD Dublin Hills Open Space Regional Preserve, and 3) acquisition of trail easements to complete the regional trail linkages described in the EBRPD's 1997 Master Plan. The TDC program would apply to all properties within the Zone and would prohibit development on slopes greater than 30 percent and on ridgetops (sender areas*). Limited residential development would be allowed on the canyon floors below the 770-foot elevation line (receiver areas**), provided that the building sites avoided steep slopes and landslide areas and employed design standards to minimize visual impact on adjacent neighborhood. In return for the residential development, landowners would be required to dedicate permanent conservation easements on all areas over the 770-foot elevation line, as well as trail easements to provide linkages to the regional trail on Skyline Ridge. Western Zone: The Draft Open Space study identifies three open space preservation objections for this zone: 1 ) Protection of ridges tops and steep slopes 2) Maintain rural character of the area 3) Complete the regional trail linkages in the Calaveras Ridge Trail Open Space strategies proposed include: 1) Remove this Zone from the City's Sphere of Influence. The Draft Open Space study recommends this action since the Western Zone cannot be served with City services without significant investment in infrastructure. It is proposed that the existing base agricultural zoning for the Zone be retained by Alameda County. Landowners wishing to develop their properties will be able to apply for permits from the County; however, they will be restricted to the base Alameda County zoning of a minimum parcel size of 100 acres. The Draft Open Space study further states that trail easements should be acquired where possible to complete the regional trail linkages described in the EBRPD's 1997 Master Plan for the Calaveras Ridge Trail. Acquisitions of land for expansion of the Dublin Hills Open Space Regional Preserve could occur as funds and willing sellers allow. The Draft Open Space Study was presented to the City Council on June 20, 2000. At this Public Meeting, the City Council directed staff to prepare an Open Space Preservation Program for the eastern portion of the Western Extended Planning Area. The program would detail how an open space strategy would be implemented in the area. The program would also study the specifics of the area topography and natural resources to identify precisely where open space is appropriate and areas that could accommodate future development. The City Council directed staff to prepare and present to the Council, the scope of work for the study and a program to involve public participation. The Open Space Implementation study is to be completed by January 2001. * Sender areas are defined as areas containing a particular resource that communities want to protect by transferring its development rights to another area. ** Receiver areas are areas that can receive and support the transferred development rights. 20 IV. DRAFT GENERAL PLAN AMENDMENT - BALLOT MEASURE PASSES This section outlines amendments to the Dublin General Plan that would be necessary in order to implement the Urban Limit Line (ULL) measure (See attached Resolution 24-99). The urban limit line would establish a boundary along the western city limits beyond which development would be restricted for a period of 30 years unless changed by the voters of Dublin. In addition, the measure anticipates that the area west of the City limits be designated for Rural Residential/Agricultural uses which permits one dwelling unit per 100 acres, agricultural and open spaces uses. The proposed general plan text and map amendments are consistent with the specific General Plan changes identified in the language of the ballot measure. The proposed general plan text amendment is shown on pages 22- 28 of this document. The draft general plan amendment will consist of adding language at the end of Section 1.4 after the discussion of the Primary Planning Area and Extended Planning Areas. The amendment includes a general description of the Urban Limit Line, its intent and purpose. The amendment also adds language at the end of Section 1.8.1 to provide a definition of the Urban Limit Line and after Table 2.2, Section 2 to further define the purpose and intent of the Urban Limit Line in relation to Land Use and Circulation policies within the Western Extended Planning Area. General Plan figures have also been amended to reflect the ULL policies. Figure 1-2, Dublin General Plan - Extended Planning Area Land Use has been amended to show the location of the ULL; to designate the area west of the ULL for "Rural Residential/Agricultural" land uses; to delete "Residential/Open Space" from the map legend; add "Urban Limit Line" and "Rural Residential/Agricultural" to the map legend; and to delete Guiding Policy 2.1.4 A. and Implementing Policy 2.1.4 D from the map. 21 DRAFT GENERAL PLAN AMENDMENT- BALLOT MEASURE PASSES September 2000 Prepared by City of Dublin Planning Department 22 Part 1: 1.1 1.2 1.3 1.4 1.5 Part 2: GPA 1.4 GPA1.8 GPA 1.8.1 GPA2 GPA 2.1.4 Figures 1-2 TABLE OF CONTENTS Introduction Background and Rationale for General Plan Amendment The Planning Process for the Western Extended Planning Area Project and Site Characteristics Policies for the Western Extended Planning Area How to use this document Draft General Plan Amendment Primary Planning Area and Extended Planning Area General Plan Map Land Use Classification Land Use and Circulation Extended Planning Area Extended Planning Area 23 Part 1: Introduction 1.1 Background and Rationale for General Plan Amendment Dublin' s current General Plan was adopted in 1985 with a number of amendments since that time. The General Plan includes site-specific policies for the central part of Dublin (the Primary Planning Area) and for large areas east of Camp Parks Military Reserve (the Eastern Extended Planning Area) and west of the existing City Limit line (the Western Extended Planning Area). On November 7, 2000, the Voters of Dublin, adopted Measure ~ to establish an Urban Limit Line for the Western Extended Planning Area. This document will identify appropriate amendments to the General Plan to implement the Urban Limit Line, consistent with the specific General Plan changes identified in Measure __ 1.2 The Planning Process for the Western Extended Planning Area Detailed planning efforts in the Western Extended Planning Area began in 1989, with the preparation of the Western Dublin Specific Plan and General Plan Amendment for the entire area. An EIR was prepared and certified in 1992. The Western Dublin Specific Plan and General Plan Amendment subsequently were rejected in a City referendum. In 1996, a General Plan Amendment was approved for the Schaefer Ranch Project, a property located within the Western Extended Planning Area to allow residential, commercial and open space uses on approximately 500 acres of land north of 1-580 and west of the existing City Limits. An EIR was prepared and certified for the Schaefer Ranch project. In 1997, Alameda County Local Area Formation Committee approved the annexation of this property to the City of Dublin. In 1998, a group of citizens concerned about potential future growth in the Western Extended Planning Area, drafted an Initiative to restrict future growth in the area. In 1998, the City Council, appointed a committee comprised of council members, citizens and staff to discuss a proposed Initiative regarding future development in the unincorporated Western Extended Planning Area. The Committee held nine public meetings to review various aspects of the proposed Initiative as well as the potential of an Urban Limit Line approach. Extensive public, comment during the process was received from concerned property owners and citizens both within the City and the Western Extended Planning Area. Consistent with the recommendations of the Committee, on February 16, 1999, the City Council placed a measure on the November 2000 ballot for voter resolution of whether an Urban Limit Line to restrict growth in the Western Hills should be approved for a period of 30 years. 24 1.3 Project and Site Characteristics Figure 1 shows the location of the Western Extended Planning Area, all property within this area with the exception of the Schaefer Ranch Property will be subject to this General Plan Amendment. Location: Between Dublin and Castro Valley, north ofi-580 and Schaefer Ranch Area: approximately 3,100 acres Existing site characteristics: Existing rangeland, with a series of ridges and canyons, considerable woodland and a number of rural residences. A row of PG&E power lines cuts through the central part of the area in a northeast-southwest direction. Existing Landowners: The majority of the Western Extended Planning Area is privately owned with the exception of approximately 160 acres owned by the East Bay Regional park District and .5 acres owned by Dublin San Ramon Services District. There are 15 separate landowners and about 67% of the land is held by four owners. The largest parcel is 598 acres and the smallest is less than a fourth-acre. 1.4 Policies for the Western Extended Planning Area The General Plan has an established format where some policies apply on a citywide basis, while other policies are directed only to the Primary Planning Area or Extended Planning Areas. This General Plan Amendment continues this selective policy approach. This document is not intended to serve as a comprehensive general plan update for Dublin. Instead, this General Plan Amendment provides necessary text and map revisions to update certain information in the General Plan. The Extended Planning Area includes both Western and Eastern Dublin. This General Plan Amendment establishes policies which are geared specifically to the Westem Extended Planning Area. 1.5 How to use this document Chapter 2 includes the actual text and figure revisions which constitute the General Plan Amendment. Typically, to provide context for the amended text, the entire section or subsection of the current General Plan is included. The full text of the current General Plan is available for review at the Dublin Planning Department. · Additions are noted in italics. · Deletions are identified by a 'strikeout' with a solid line through the text to be deleted. · Material in brackets is not a part of the amendment, but describes formatting of text. 25 Part 2: Draft General Plan Amendment AMENDMENT 1.4: PRIMARY PLANNING AREA AND EXTENDED PLANNING AREA [Add the following text regarding Urban Limit Line to the end of Section 1.4. Staff proposes to add language regarding the Urban Limit Line to Section 1.4, which defines the Western Extended Planning Area, following the same format utilized for previous general plan text amendments. The proposed text contains minor, non-substantive revisions for more precise reference to the ballot measure and its adoption date] Urban Limit Line- Western Extended PlanningArea An Urban Limit Line was adopted for the Western Extended Planning Area by the Voters of Dublin by approving Measure in the General Hection on November 7, 2000. The Urban Limit Line is located along the western city limit line. Lands located west of the Urban Limit Line are designated for Rural Residential/Agricultural uses for a period of 30 years from the date of approval of Measure Refer to Section 1.8. l for a definition of the Urban Limit Line. AMENDMENT 1.8: GENERAL PLAN MAP [revise Figure 1-2, Dublin General Plan, Land Use Map, Extended Planning Area as follows:] Amend Figure 1-2 to locate the Urban Limit Line in the Western Extended Planning Area along the City jurisdiction boundary. (Refer to Figure 6: Draft General Plan Map Amendment) b) Amend Figure 1-2 to show a land use designation of Rural Residential/Agriculture for all of the Western Extended Planning Area lands located west of the Urban Limit Line. (Refer to Figure 6: Draft General Plan Map Amendment) c) Amend legend of Figure 1-2 to add "Urban Limit Line" and "Rural Residential / Agriculture" and delete "Residential / Open Space". (Refer to Figure 6: Draft General Plan Map Amendment) d) Amend Figure 1-2 to delete Guiding Policy 2.1.4 A. and Implementing Policy 2.1.4 D from the map. (Refer to Figure 6: Draft General Plan Map Amendment) AMENDMENT 1.8.1: LAND USE CLASSIFICATION, WESTERN EXTENDED PLANNING AREA, RESIDENTIAL [Add actual text of "Residential: Rural Residential/Agriculture" land use designation as follows and delete cross reference] Residential: Rural Residential/Agriculture (1 unit per 100 gross residential acres) See description under Eastern Dublin Extended Planning Area Accommodates agricultural activities and other open space uses, such as range and watershed management, consistent with site conditions and plan policies. This classification includes 26 rammine mmmmmm NNmmm Q r, .-~ privately hem lands, as well as public ownerships not otherwise designated in the plan for Parks, Open Space, or Public/Semi-public uses. Assumed household size is 3.2 persons per unit. AMENDMENT 1.8.1: LAND USE CLASSIFICATION, WESTERN EXTENDED PLANNING AREA, OTHER LAND USE CATEGORIES [Add text to define 'Urban Limit Line' after "Other Land Use Categories" entries as new subheading. The proposed text contains minor, non-substantive revisions for more precise reference to the ballot measure and its adoption date.] Urban Limit Line. An Urban Limit Line was adopted by the Voters of Dublin for the Western Extended Planning Area by approving Measure in the General Election on November 7, 2000. The Urban Limit Line is located along the western city limit line. Lands west of the Urban Limit Line are designated as Rural Residential/Agriculture on the Land Use Map. The Urban Limit Line is effective for 30 years fi'om the date of approval of Measure ; the location of the Urban Limit Line may be changed only with a vote of the people of Dublin daring the effective period and only following review and approval of a General Plan Amendment by the City Council. Any request to change the Urban Limit Line must be accompanied by a request to amend the land use designation to an urban designation. AMENDMENT 2: LAND USE AND CIRCULATION, WESTERN EXTENDED PLANNING AREA [Add the following text after Table 2.2 Schaefer Ranch Project Land Use and Housing Characteristics; note that upon approval of the ballot measure, the reference to section 2.8.2 of the measure will become section 1.8.1 of the General Plan] All lands in the Western Extended Planning Area located west of the Urban Limit Line as defined in Section 2. B. 2 above, shall be designated Rural Residential/Agriculture for a period of 30 years j~om the date of approval of Measure by the voters of Dublin. The intent of the Urban Limit Line is to protect the natural resources of the western hills and to restrict further urban development in the western hills, instead guiding it to areas of Dublin that are less constrained and where urban services can be provided in a more efficient and cost-effective manner. In addition to restricting urban development, the City will not approve or recommend approval of the permanent use or extension of city services or facilities, including but not limited to utilities or roads, to support or facilitate urban development beyond the Urban Limit Line. 28 V. DRAFT GENERAL PLAN AMENDMENT - BALLOT MEASURE FAILS It is proposed that any future General Plan Amendment shall continue to support the existing General Plan policies that protect environmentally sensitive areas, such as slopes over 30 percent, landslide areas, oak woodland, riparian corridors and visually sensitive hillsides and ridgelines. The location and density of any future residential development shall be considered as part of the Open Space Implementation study and should comply with the following guidelines: Consider urban development only on flatter slopes below the 740-foot elevation with minimum impact on environmental resources. , Ensure that any future development occurs in an orderly manner, adjacent to existing urban development to minimize public infrastructure/service costs. Develop site planning design guidelines to ensure clustering of future development and to minimize visual impacts on existing neighborhoods. Any future General Plan Amendments relating to the implementation of an Open Space strategy within the west Dublin hills shall: Ensure that an open space corridor on the main ridgeline be preserved with a regional north-south trail extending across the site with other appropriate open space/trial links to the existing community. Implement appropriate policies and programs to permanently preserve open space, if the City Council chooses to do so. Create policies and programs to compensate for the loss of residential development in western Dublin by encouraging higher density development in already developed areas of the City. The Open Space Implementation study shall include an analysis of the following: Determine areas suitable for urban development (residential) and areas designated for agriculture/open space. Evaluate the appropriateness of the existing western sphere of influence boundary and prepare options to maintain, remove or reduce the sphere of influence area. The following section outlines draft amendments to the Dublin General Plan that should be considered if the ballot measure fails and the results of the Open Space Implementation Study are known. This study is expected to be completed by January 2001. 29 AMENDMENT 1.4: PRIMARY PLANNING AREA AND EXTENDED PLANNING AREA Revise language to amend definition of Western Extended Planning Area, if the City Council decides to remove the western portion of the areaJ~om the City's Sphere of lnfiuence. AMENDMENT 1.8.1: LAND USE CLASSIFICATION, WESTERN EXTENDED PLANNING AREA, The Open Space Implementation Study will identi~ specific areas that wouM be suitable for open space uses and/or urban development. Consider amending land use categories, allowable uses and densities, as appropriate AMENDMENT 1.8.1: GENERAL PLAN MAP [Figure 1-2, Dublin General Plan, Land Use Map, Extended Planning Area] Consider amending Figure 1-2 (Figure 1-2 is attached as Figure 2 to this report) to revise western boundary of the Western Extended Planning Area if the City Council chooses to remove this area from the City's Sphere of Influence. Consider amending Figure 1-2 Figure 1~2 is attached as Figure 2 to this report) to show revised land use designations (location and extent) to accommodate open space preservation and/or future residential development as determined by the Open Space Implementation Study. Consider amending legend of Figure 1-2 (Figure 1-2 is attached as Figure 2 to this report) to add appropriate land use designations to the map legend Consider amending Figure 1-2 (Figure 1-2 is attached as Figure 2 to this Report) to delete Guiding Policy 2.1.4 A. and Implementing Policy 2. 1.4 D from the map. Add new policies relating to future land uses and potential development as determined appropriate by the Open Space Implementation Study. AMENDMENT 2: LAND USE AND CIRCULATION, WESTERN EXTENDED PLANNING AREA Consider preparing a generalized land use and circulation pattern for the Western Extended Planning, in the event, areas are deemed suitable for future urban uses. AMENDMENT 2.1.4: EXTENDED PLANNING AREA, GUIDING POLICY - WESTERN EXTENDED PLANNING AREA [Policy E currently states "The location, extent and density of residential development will be determined when municipal services can be provided and through General Plan refinement 3o studies."] Consider amending Policy E to identij52 how future residential projects would be processed by the City. In the event, no area within the Western Extended Planning Area is deemed suitable for future development, consider deleting this section fi'om the Plan. AMENDMENT 3: LAND USE AND CIRCULATION: PARKS & OPEN SPACE ELEMENT, WESTERN EXTENDED PLANNING AREA Consider amending existing policies or adding new policies to implement an open space strategy if the City Council chooses to do so. AMENDMENT 4: LAND USE AND CIRCULATION: CIRCULATION AND SCENIC HIGHWAYS, WESTERN EXTENDED PLANNING AREA Consider adding new policies relating to circulation improvements to serve specific areas of new residential development, if the Open Space Implementation study identifies areas suitable for urban development. AMENDMENT 5: ENVIRONMENTAL RESOURCES MANAGEMENT: CONSERVATION ELEMENT In the event, the City Council decides to amend the City's western Sphere of Influence boundary, consider amending the descriptive language within this section to accurately describe the revised Western Extended Planning Area. AMENDMENT 6: SECTION 7.7 OPEN SPACE MAINTENANCE/MANAGEMENT Consider appropriate amendments to this section to implement an open space preservation strategy, if the City Council chooses to do so. 31