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County Planning Commission Tuesday, November 30, 2010

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County Planning Commission Tuesday, November 30, 2010 Agenda Item #2 Department of Conservation and Development Contra Costa County COUNTY PLANNING COMMISSION TUESDAY, NOVEMBER 30, 2010 DOWNTOWN EL SOBRANTE GENERAL PLAN AMENDMENT (County File: GP#02-0003) STAFF REPORT AND RECOMMENDATIONS I. INTRODUCTION DOWNTOWN EL SOBRANTE GENERAL PLAN AMENDMENT (COUNTY FILE: GP#02-0003): The proposed General Plan Amendment would revise the Land Use Element and Transportation-Circulation Element of the Contra Costa County General Plan (2005-2020) affecting the commercial core or downtown area of the unincorporated community of El Sobrante, California. More specifically it would: (1) a. Amend the Land Use Element to establish three new “mixed use” land use designations on selected blocks along the south side of San Pablo Dam Road, from El Portal Drive to Appian Way, and on selected blocks along Appian Way from Valley View to San Pablo Dam Road; and, (1)b. Amend the Land Use Element to revise and update policy language for the El Sobrante community in sections and figures under the heading “Policies for El Sobrante Area”, “Policies for Appian Way Corridor Special Concern Area”, and “Policies of the San Pablo Dam Road Commercial Special Concern Area”; and, (2) Amend the Roadway Network Map (Figure 5-2), Transportation-Circulation Element to remove all references to a planned 6-lane bypass couplet for San Pablo Road between El Portal Drive and Appian Way, to instead, retain the current 4-lane plus center left turn lane configuration and add a new collector roadway connecting Pitt Way to Hillcrest Road, and to remove all references to a planned 4-lane roadway for Appian Way extending from San Pablo Dam Road to the Pinole city limits, to instead, retain the existing 2-lane roadway configuration as the planned roadway. (Census Tracts: 3690.02, 3610.00, 3630.00, 3602.00, and 3601.00) (Assessor Parcel Book Pages: 420-010, 420- 020, 420-140, 420-150, 420-190, 425-100, 425-110, 425-120,425-140, 425-150, 425-170, 425-220, 425-230, 425-240, 425-300, 426-260, 430-150, and 430-050) II. RECOMMENDATION Staff recommends the County Planning Commission forward the following recommendations to the Board of Supervisors: Page 1 of 27 County Planning Commission, November 30, 2010 Downtown El Sobrante General Plan Amendment (County File: GP#02-0003) III. BACKGROUND A. PROJECT LOCATION The proposed General Plan Amendment is located in the unincorporated area of El Sobrante in west Contra Costa County, border by the city limits of Richmond and San Pablo. The proposed General Plan Amendment would affect multiple parcels along San Pablo Dam Road between El Portal Drive and Appian Way, and along Appian Way between San Pablo Dam Road and Valley View Drive. See Figures 1 and 2 for the area mapped under the proposed General Plan Amendment. B. EXISTING CONDITIONS AND SETTING The El Sobrante Valley lies in the western portion of the county, in a semi-rural pocket of low to medium density residential development and local serving businesses, surrounded by highly developed urban and suburban areas that typify the I-80 corridor. The proposed General Plan Amendment covers approximately 170 acres within the El Sobrante Valley along a 4-block section of San Pablo Dam Road characterized by corridor commercial strip development, and 8-block section of Appian Way characterized by both corridor commercial strip and residential development. The natural landscape of the El Sobrante Valley is characterized by rolling hillsides, oak trees, creeks and lush vegetation. San Pablo Creek which flows out of San Pablo Reservoir passes through the valley and runs parallel to San Pablo Dam Road, and it is adjacent to the General Plan Amendment area on the north. The portion of the General Plan Amendment area along Appian Way rises gradually from its intersection with San Pablo Dam Road to Valley View Drive. Appian Way is characterized by a variety of land uses, with properties improved with single-family residences, apartments, a mobile home park, retail or commercial service uses and some vacant properties. Regional access to the area is provided via Interstate 80, San Pablo Dam Road and State Highway 24. Historically, San Pablo Dam Road between El Portal Drive and Appian Way has served as El Sobrante’s commercial core or downtown with a concentration of local serving retail and business uses. Through the 1950’s -1960’s the 4-block segment of San Pablo Dam Road was a vibrant commercial center containing shops, restaurants, and offices primarily serving local needs. This began to change in the 1970’s with shifting development patterns and by the 1980’s-1990’s, the accelerated growth patterns in surrounding areas, greater concentration of regional retail along the I-80 corridor, and overall changes in the retail environment, resulted in a general decline in economic activity along San Pablo Dam Road and to a certain extent along Appian Way. Page 3 of 27 County Planning Commission, November 30, 2010 Downtown El Sobrante General Plan Amendment (County File: GP#02-0003) At the same time, the increased development in surrounding areas, particularly the emergence of regional serving commercial areas parallel to I-80, increased through traffic demands on roadways within the El Sobrante Valley. San Pablo Dam Road now functions as an important commute corridor in western Contra Costa County. The four block segment of San Pablo Dam Road between El Portal Drive and Appian Way is configured into 4 travel lanes plus a center left turn lane. This segment of the roadway carries an average of 31,000 vehicles per weekday. Motorists often speed through the area at speeds well in excess of the posted 25 miles per hour limit. C. CHRONOLOGY OF GENERAL PLAN POLICIES FOR EL SOBRANTE The following is a chronology for the development of General Plan policies in the El Sobrante area: 1955 The Contra Costa County Planning Department delineated the county into thirteen (13) planning areas which were to indicate the various and distinctive communities in the unincorporated territory of Contra Costa County and to serve as the basis for more detailing community planning than a county-wide plan. El Sobrante community was designated Planning Area 1. 1962-1967 El Sobrante Valley Council organized in 1962 expressly to create a general plan for the community. The local group of citizens was formed partly in response to annexations of the El Sobrante Valley by the City of Richmond. The committee held several joint meetings in which the County and City of Richmond were represented, but it was later disbanded due to objections from other citizen groups. County Planning Department was then given responsibility to finish the preparation of a general plan and another citizen advisory group was formed, which held meetings between 1963 and 1964. Also, in 1964 the State Division of Highways (forerunner to Caltrans) conducted a public hearing in 1964 concerning a proposed freeway through the planning area. The proposed freeway, identified as Route 254 and then renumbered as Route 93, was to pass through El Sobrante in an east-west direction generally running parallel and south of San Pablo Dam Road connecting from Highway 24 to Interstate 80. A technical committee was formed and this group met through 1964. Citizen Advisory Committee completed its work on General Plan in 1965 and forwarded proposal to County Planning Department. County Planning Commission conducted public hearings on plan in late 1966. Page 4 of 27 County Planning Commission, November 30, 2010 Downtown El Sobrante General Plan Amendment (County File: GP#02-0003) 1967-1972 El Sobrante General Plan, Planning Area I adopted by the Board of Supervisors, on July 5, 1967. This plan for the physical development of the El Sobrante community included schematic land use and circulation plan and policies. The planning horizon year was 1990 with a projected buildout population of 45,000. The plan acknowledged that El Sobrante would continue to urbanize as a community of mostly single family residential, but with a range of densities based on topographic conditions, retail shopping should be centralized, in contrast to strip commercial development, and the transportation system serving the area “should be designed for circulation and access almost exclusively by vehicular mode of travel”. One significant feature of this plan was the provision for a State Route 93 highway corridor that generally ran parallel to San Pablo Dam Road to connect Interstate 80 (I-80) with State Route 24 near Orinda. This adopted plan became one of 13 adopted community plans making up the Contra Costa County General Plan. 1972 – 1973 In September 1972, the County Planning Commission requested a review to the El Sobrante Area General Plan, concentrating on the San Pablo Dam Road corridor between Appian Way and the East Bay Municipal Utility District properties to the east. As a result of this review, the Board of Supervisors approved an amendment to the El Sobrante Area General Plan to provide for multi-family uses along San Pablo Dam Road east of Appian Way, and, while acknowledging that the 1967 plan identified a future State Route 93 highway corridor running parallel and south of San Pablo Dam Road it was scaled back to an arterial corridor (rather than planned highway corridor) due to state highway need and funding priorities. 1975 -1979 In March 1975, El Sobrante Area Traffic Study completed (prepared for Contra Costa County, Public Works Department, by DeLeuw Cather & Company). The study recommended that a new roadway be constructed and parallel to and south of San Pablo Dam Road approximately between El Portal Drive and Appian Way. The proposed roadway would function as one-way eastbound road coupled with existing San Pablo Dam Road converted to one-way westbound operation between El Portal Drive and Appian Way.
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