Land Use LAND USE. Major Findings. Town of Windsor General Plan Update

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1 Land Use Town of Windsor General Plan Update LAND USE This chapter reviews the present (2014) context for land use planning in the Town of Windsor. It provides a comprehensive overview of how land resources are used and regulated within Windsor and its immediate surroundings. It also identifies potential challenges and opportunities related to the long-term growth and development of the Town, and analyzes the development capacity of Windsor under existing plans, policies, and regulations. This chapter is organized into the following sections: Planning Boundaries (Section 3.1) Annexation History (Section 3.2) Existing Land Use (Section 3.3) General Plan Land Use Designations (Section 3.4) Existing Zoning (Section 3.5) Development Capacity (Section 3.6) Other Plans and Policies (Section 3.7) Regional Plans (Section 3.8) Military Installations (Section 3.9) Disadvantaged Unincorporated Communities (Section 3.10) This section describes the major political and geographic boundaries that influence the long-term growth and development of Windsor. A glossary of key terms is included at the end of Chapter 3. Major Findings The Windsor Town Limits include all incorporated areas of the town, which cover approximately 7.3 square miles. The Windsor Sphere of Influence (SOI) encompasses 7.5 square miles and includes almost all of the incorporated areas of the town as well as surrounding unincorporated areas that may be affected by the future growth of the town. Areas outside the Town Limits, but inside the SOI, include undeveloped areas along the northeastern, eastern, and western edges of the Town Limits, and the area south of Shiloh Road and east of Highway 101. There are five isolated areas outside the Sphere of Influence, but inside the Town Limits, including three water reclamation areas to the southwest, the Russian River well lands to the northwest, and the Shiloh Ridge Water Facilities to the east. Public Review Draft Background Report Page 3-1

2 The existing 2015 General Plan ensured that the Urban Growth Boundary is coterminous with the Windsor SOI. As such, the Urban Growth Boundary and the SOI are geographically synonymous. The Planning Area for the Windsor 2040 General Plan encompasses the entire area within the Urban Growth Boundary and other lands which need to be considered to properly plan for Windsor s future. The Planning Area is roughly bounded by the Russian River on the west, a ridge line to the north (at the intersection of Old Redwood Highway with the Northwestern Pacific Railroad), the PG&E transmission lines to the east, and Airport Creek to the south. The Planning Area encompasses approximately 21.4 Acres. Existing Setting Windsor s sphere of influence (SOI) and Urban Growth Boundary encompass 7.5 square miles. The Windsor General Plan Planning Area encompasses 21.4 square miles and includes all land within the Urban Growth Boundary, as well as unincorporated lands that are considered necessary for planning Windsor s future. Figure 3-1 shows the boundaries of Windsor s Town Limits, Sphere of Influence, Urban Growth Boundary, and General Plan Planning Area. Windsor Town Limits Figure 3-1 shows the Town Limits of Windsor. The Windsor Town Limits include all incorporated areas of the town, which cover approximately 7.3 square miles. The area outside of the Town Limits is under the jurisdiction of Sonoma County. Windsor Sphere of Influence An SOI is established by the County Local Agency Formation Commission (LAFCO), and is defined as a planning boundary outside of an agency s legal boundary (such as the Town limit line) that designates the agency s probable future boundary and service area. The Windsor SOI encompasses 7.5 square miles and includes almost all of the incorporated areas of the city as well as surrounding unincorporated areas that may be affected by the future growth of the town. Areas outside the Town Limits, but inside the SOI, include undeveloped pockets along the east and west edge of the Town Limits, and the area south of Shiloh Road and east of Highway 101. There are five isolated areas outside the Sphere of Influence, but inside the Town Limits, including three water reclamation areas to the southwest, the Russian River well lands to the northwest, and the Shiloh Ridge Water Facilities to the east. Urban Growth Boundary The Windsor Urban Growth Boundary defines the limits of urbanization and encourages a compact, cohesive pattern of urbanization with a definite and identifiable boundary. The existing 2015 General Plan proposed the Urban Growth Boundary contain urban development within the boundary and coordinate with the County in its efforts to maintain a rural character beyond it. The Windsor Urban Growth Boundary encompasses 7.5 square miles and includes both the incorporated areas of the town and surrounding unincorporated areas that may be affected by the future growth of the town. The existing 2015 General Plan ensured that the Urban Growth Boundary is coterminous with the Windsor SOI. As such, the Urban Growth Boundary and the SOI are geographically synonymous. This boundary is referred to in the Background Report as the Urban Growth Boundary with the understanding that it refers to both the Urban Growth Boundary and the SOI. Page 3-2 Public Review Draft Background Report

3 Slusser Rd Hembree Ln Brooks Rd Conde Ln Figure 3-1 Planning Boundaries 101 IVER RUSSIAN R Arata Ln Chalk Hill Rd WRIGHT C REEK Starr Rd Eastside Rd Windsor River Rd Windsor Rd Conde Ln POO L CREEK Pleasant Ave Reiman Ln Mitchell Ln Windsor Rd Shiloh Rd Old Redwood Hwy Shiloh Rd Faught Rd W I N DSOR CREEK Airport Blvd MARK WE ST CREEK River Rd Fulton Rd 101 River Rd Legend Major Roads Railroad Waterways Town Limits Urban Growth Boundary/ Sphere of Influence Planning Area Windsor Town Green Miles F Data Source: Town of Windsor; 2014

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5 Land Use Town of Windsor General Plan Update General Plan Planning Area State law requires cities to adopt a general plan that addresses physical development within its city limits, as well as land outside its boundaries, which in the planning agency s judgment, bears relation to its planning. The Planning Area for the Windsor 2040 General Plan encompasses the entire area within the Urban Growth Boundary and other lands which need to be considered to properly plan for Windsor s future. The Planning Area is roughly bounded by the Russian River on the west, a ridge line to the north (at the intersection of Old Redwood Highway with the Northwestern Pacific Railroad), the PG&E transmission lines to the east, and Airport Creek to the south. The Planning Area encompasses approximately 21.4 square miles. The purpose for the Planning Area is to provide the opportunity to evaluate the effects of future growth on the entire Urban Growth Boundary and to develop further analysis of the values of the surrounding open space and agricultural areas beyond the Urban Growth Boundary. Regulatory Setting California Government Code Section Section of the California Government Code requires a general plan to address the geographic territory of the local jurisdiction and any other territory outside its boundaries that bears relation to the planning of the jurisdiction. The jurisdiction may exercise their own judgment in determining what areas outside of its boundaries to include in the Planning Area. The State of California General Plan Guidelines state that the Planning Area for a city should include (at minimum) all land within the city limits and all land within the city s Sphere of Influence. Cortese Knox Hertzberg Local Government Reorganization Act of 2000 (CKH Act). The Cortese Knox Hertzberg Local Government Reorganization Act (CKH Act) is the most significant reform to local government reorganization law since the 1963 statute that created a LAFCO in each county. The law established procedures for local agency changes of organization, including city incorporation, annexation to a city or special district, and consolidation of cities or special districts (Section 56000, et seq.). LAFCOs have numerous powers under the CKH Act, but the most important are the power to act on local agency boundary changes and to adopt spheres of influence for local agencies. The law also states that in order to update a Sphere of Influence, LAFCOs are required to first conduct a review of the municipal services provided by the local agency. The CKH Act also requires LAFCOs to update spheres of influence for every city and special district every five years. The original deadline was January 2006, five years following the CHK Act becoming State law. That deadline was extended two years to January Every SOI update must be accompanied by an update of the municipal services review. Sonoma County LAFCO completed a municipal service review for Windsor in Sonoma County LAFCO s policy is to confirm Spheres of Influence every five years and to complete an MSR when sphere amendments are proposed.. The next municipal service review for Windsor will occur whenever an amendment is considered. Public Review Draft Background Report Page 3-5

6 This section describes Windsor s annexation history since its incorporation in A glossary of key terms is included at the end of Chapter 3. Major Findings Since incorporation in 1992, Windsor has annexed approximately 0.61 square miles. Most of Windsor s annexations are non-contiguous and include well fields, irrigation sites, and water and wastewater storage ponds. Existing Setting When the Town of Windsor incorporated on July 1, 1992, it encompassed approximately 6.7 square miles. Since then, the Town has annexed 0.61 square miles, resulting in its current (2014) size of approximately 7.3 square miles. Table 3-1 shows Windsor s annexations since incorporation. Five of these annexations are noncontiguous and include well fields, irrigation sites, and water and wastewater storage ponds. TABLE 3-1 ANNEXATION HISTORY Area Name/Address APN Acres Russian River Well Lands/ Eastside Road Town of Windsor July 2014 Square Miles Water Reclamation Lands/ 6942 Eastside Road Water Reclamation Lands/ 6921/6977 Trenton-Healdsburg Road Starr Road Shiloh Ridge Water Facilities/ 3501 Shiloh Ridge Road Sanders Road Sanderson / Old Redwood Hwy. Source: Town of Windsor, Less than Total Page 3-6 Public Review Draft Background Report

7 Land Use Town of Windsor General Plan Update Regulatory Setting Cortese Knox Hertzberg Local Government Reorganization Act of 2000 (CKH Act). The Cortese Knox Hertzberg Local Government Reorganization Act established procedures for local agency changes of organization, including city incorporation, annexation to a city or special district, and consolidation of cities or special districts (Section 56000, et seq.) While LAFCO does not have any direct land use authority, the CKH Act assigns LAFCOs a significant role in planning issues by requiring them to consider a wide range of land use and growth factors when they consider proposed boundary changes. California Government Code Section specifically states that the logical formation and determination of local agency boundaries is an important factor in promoting orderly development and in balancing that development with sometimes competing State interests of discouraging urban sprawl, preserving open space and prime agricultural lands, [and] efficiently extending government services. This section describes how properties within the Windsor Planning Area are currently (July 2014) being used. Existing land use was determined based on Assessor s Use Code data provided by the County of Sonoma. A glossary of key terms is included at the end of Chapter 3. Major Findings The most common existing land use category within the Urban Growth Boundary and Town Limits is single family residential. Single family residential uses make up 11 percent of the Planning Area (1,522 acres), 29 percent of the Urban Growth Boundary (1,405 acres), and 31 percent of the Town Limits (1,399 acres). Commercial and office uses make up roughly two percent of the Planning Area (273 acres), four percent of the Urban Growth Boundary (183 acres), and four percent of the Town Limits (179 acres). About 869 acres of Windsor s Planning Area is vacant/underutilized land. Much of this land is located in and around the industrial region south of Shiloh Road and north of Airport Boulevard. Vacant or underutilized land makes up 6 percent of the Planning Area, 9 percent of the Urban Growth Boundary, and 8 percent of the Town Limits. The most common existing land use in the Planning Area, which includes lands outside the Town boundaries, is agriculture. This land use makes up 39.3 percent of the Planning Area (5,386 acres). Existing Setting Table 3-2 and Figure 3-2 show how the properties within the Windsor Planning Area are currently (2014) being used. The existing land use of a property does not carry any regulatory significance and may or may not be consistent with the current General Plan land use designation or zoning for the property. In many cases the existing land uses were established prior to the adoption of the current General Plan land use designation or zoning districts. The most common existing land use category within the Urban Growth Boundary and Town Limits is single family residential. Single family residential uses make up 11 percent of the Planning Area (1,522 acres), 29 Public Review Draft Background Report Page 3-7

8 percent of the Urban Growth Boundary (1,405 acres), and 31 percent of the Town Limits (1,399 acres). Outside of the corridor between the railroad and Highway 101, most of the Town Limits is currently single family residential. Commercial and office uses make up roughly 2 percent of the Planning Area (273 acres), 4 percent of the Urban Growth Boundary (183 acres), and 4 percent of the Town Limits (179 acres). Industrial lands in Windsor are primarily located in the southern part of the Planning Area between Shiloh Rd. to the north and Airport Blvd. to the south. Industrial uses make up 3 percent of the Planning Area (430 acres), 6 percent of the Urban Growth Boundary (307 acres), and 7 percent of the Town Limits (307 acres). About 869 acres of Windsor s Planning Area is vacant/underutilized land. Much of this land is located in and around the industrial region south of Shiloh Road and north of Airport Boulevard. Vacant or underutilized land makes up 6 percent of the Planning Area, 9 percent of the Urban Growth Boundary, and 8 percent of the Town Limits. The most common existing land use in the Planning Area, which includes lands outside the Town s boundary, is agriculture. This land use makes up 39.3 percent of the Planning Area (5,386 acres). The majority of agriculture is located outside of the Urban Growth Boundary, however. Agricultural uses make up 6.2 percent of the Urban Growth Boundary and 1.6 percent of the Town Limits. Existing Land Use TABLE 3-2 EXISTING LAND USE Town of Windsor Planning Area, Urban Growth Boundary, Town Limits July 2014 Planning Area Acreage Percent of Total Urban Growth Boundary Acreage Percent of Total Town Limits Acreage Percent of Total Agriculture 5, Commercial Retail Commercial Services Industrial Mixed Use 2 <0.1 1 <0.1 1 <0.1 Multifamily Residential Multiple Use Office Open Space Other/Right-of-Way 1, Parks and Recreation Public/Quasi Public Rural Residential 1, Single Family Residential 1, , , Vacant/Underutilized Total 13, , , Source: Sonoma County Assessor s Office, Town of Windsor, Lytton Residential Development Page 3-8 Public Review Draft Background Report

9 Land Use Town of Windsor General Plan Update The Lytton Band of Pomo Indians (Tribe) owns significant land holdings on the west side of town, mostly located within unincorporated Sonoma County but some within the Town s Urban Growth Boundary (see Figure 3-2). The Tribe plans to use this land to establish its homeland and provide homes to Tribe members. The Tribe has also indicated its vision to acquire more land further west of Windsor that might include a wine/resort center, outside of Town limits. The Tribe has expressed interest in connecting to Town water and sewer facilities for its planned residential development of 147 units. Public Review Draft Background Report Page 3-9

10 Slusser Rd Hembree Ln Brooks Rd Conde Ln Figure 3-2 Existing Land Use 101 IVER RUSSIAN R Arata Ln Chalk Hill Rd WRIGHT C REEK Eastside Rd Windsor River Rd Starr Rd Windsor Rd Reiman Ln Conde Ln Old Redwood Hwy POOL CREEK Pleasant Ave Mitchell Ln Windsor Rd Shiloh Rd Shiloh Rd Faught Rd WI N DSOR CREEK Airport Blvd MARK WEST CREEK River Rd Fulton Rd 101 River Rd F Miles Legend Proposed Lytton Residential Development Major Roads Railroad Waterways Town Limits Urban Growth Boundary Planning Area Existing Land Use Open Space Agriculture Commercial Retail Commercial Services Office Industrial Rural Residential Single Family Residential Multifamily Residential Mixed Use Other/Right-of-Way Parks and Recreation Public/Quasi Public Vacant/Underutilized Multiple Use Data Source: Town of Windsor; 2014

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12 Regulatory Setting None This section describes the existing general plan land use designations within the Urban Growth Boundary. It describes each of the designations contained in the existing general plan and identifies the total acreage of all planned land uses within the Urban Growth Boundary and Town Limits. A glossary of key terms is included at the end of Chapter 3. Major Findings Residential designations make up 64 percent of designated lands within the Urban Growth Boundary. Commercial and industrial designations make up 16 percent of designated lands within the Urban Growth Boundary. Approximately 13 percent of the Urban Growth Boundary is designated either Parks or Open Space. Existing Setting Windsor General Plan Land Use Designations Figure 3-3 shows the existing General Plan designations within the Urban Growth Boundary. The Town currently (2014) only designates land within the Urban Growth Boundary. Lands outside the Urban Growth Boundary, but inside the Planning Area are designated by the Sonoma County General Plan (see Section 3.7, Other Plans and Policies). The Windsor land use designations are described below. Open Space. This designation is intended to promote the conservation of resource values, to protect public safety from hazardous conditions (such as floodways and active landslide areas), to provide visual relief from urbanization, to diminish land use incompatibilities between agricultural and urban development, and to allow development of outdoor recreation. Density/Intensity: Low intensity; maximum 1 dwelling unit per 20 acres Rural Residential, Very Low Density Residential. This designation is intended to accommodate a rural residential living environment. Typically, these areas do not have urban services (such as public water supply, wastewater collection, and wastewater treatment). Uses may include limited agricultural operations such as ranchettes, recreation, and limited residential development. This type of land use exists primarily in the unincorporated lands around the Town. Density/Intensity: Single family detached units on large parcels, 5 acres or greater; densities range from dwelling unit per acre Estate Residential, Low Density Residential. This designation is intended to provide for a largelot single family neighborhood environment. Examples of this designation in existing areas include Oak Hill Estates and Vintage Hills. Density/Intensity: Single family detached units on large parcels; densities range from dwelling units per acre Page 3-12 Public Review Draft Background Report

13 Land Use Town of Windsor General Plan Update Surrounding Residential, Low-Medium Density Residential. This designation is intended to provide a mix of housing types on traditional single family lots. This is the predominant residential land use designation in the town. Examples of this designation include Elsbree Estates, Lakewood Glen, and Foothill Park subdivisions. New development within this designation is encouraged to accommodate a range of housing types to provide greater choices for Windsor residents. Uses may include single family homes, duplexes, and triplexes, provided that they lie within the density range indicated below. Other attached unit types may be considered subject to design review to ensure compatibility with single family detached development. Density/Intensity: Single family detached units; densities range from 3-6 dwelling units per acre Village Residential, Medium Density Residential. This designation is intended to provide a mix of housing types on smaller lots or as attached units. Building intensities at the lower end of the density range may be appropriate adjacent to Low-Medium and Low Density Residential. Housing types at this end would be characterized by detached units. Building intensity at the higher end of the range is appropriate near neighborhood centers, parks, and at transit stops. An existing example of this designation is the Windsor Court subdivision. Single family homes, duplexes, triplexes, and townhomes are compatible with this designation, provided that they lie within the density range indicated below. Density/Intensity: Detached and attached dwelling units; densities range from 5-8 dwelling units per acre ( persons per acre) Mobile Home Park. This designation is intended to recognize existing land devoted to mobile home parks. Density/Intensity: Mobile homes, trailer parks, manufactured units; existing development ranges from 8-12 dwelling units per acre ( persons per acre) Medium-High Density Residential. This designation is intended to provide opportunities for a residential living environment marked by attached units. Densities in this designation are suitable in activity centers, along major thoroughfares, and near transit stops and parks. Examples of this development include Village Oaks and Oak Glen subdivisions. Small single-family units, row houses, townhomes, and small apartment complexes would be compatible with the Medium-High Density Residential designation. Density/Intensity: Detached and attached dwelling units; density range from 8-12 dwelling units per acre ( persons per acre) High Density Residential. This designation is intended to recognize existing land devoted to highdensity housing and to provide other opportunities for such development in Windsor. Existing examples of this designation include Twin Oaks and Forest Winds subdivisions. This designation is typified by townhouses and occasionally apartments. Density/Intensity: Attached dwelling units; existing and infill development ranges from dwelling units per acre ( persons per acre) Compact Residential. This designation is intended to provide opportunities for compact highdensity housing in Windsor, especially in association with nearby mixed-use development and near transit corridors or stops. An example of this designation is the proposed Windsor Mill. This designation is typified by apartments, condominiums, and occasionally townhomes. In limited Public Review Draft Background Report Page 3-13

14 circumstances it may also allow for schools, parks, and other public facilities to serve the residential community. Density/Intensity: Apartments and other attached dwelling units; planned development ranges from dwelling units per acre Retail Commercial. This designation is intended to provide retail and services opportunities. Uses include individual shops on single parcels, as well as freestanding shopping centers offering a range of local-serving or community-serving personal, retail and service activities, restaurants, and business services. Density/Intensity: average Floor Area Ratio of.25; approximately 450 square feet per employee Service Commercial. This designation is intended to provide locations for personal and business services that are often land intensive (as opposed to labor intensive). Examples of uses compatible with this designation are landscape contractors, retail outlets for building, construction materials, construction equipment sales and rentals, automobile repair and wrecking operations. Other uses compatible with this designation include travel-oriented land uses such as gasoline stations, transient lodging, outdoor recreation, and amusement parks. Density/Intensity: average Floor Area Ratio of.25; approximately 450 square feet per employee Gateway Commercial. This designation is intended to provide locations for automobile-oriented, highway-serving activities. Compatible uses include tourist-related uses, transient lodging, conference and recreation facilities, gasoline stations, and restaurants. Regional serving retail uses may also be considered in this designation. Because this designation is applied to visually prominent entryways into the Town along Old Redwood Highway and U.S. 101, development in these areas must be of a high-quality design, considering architecture, building placement, signage, and lighting. Density/Intensity: average Floor Area Ratio of.25; approximately 450 square feet per employee. General Business. This designation is intended to provide locations for commercial, office, and retail services. This allows a broader range of activities than the Retail Commercial designation. It is applied in a limited number of locations where retail and office uses would be permitted and would not likely detract from Town objectives to revitalize the downtown area. Density/Intensity: average Floor Area Ratio of.25; approximately 450 square feet per employee. Increases In FAR up to.30 may be considered subject to discretionary and environmental review. Light Industrial. This designation is intended to provide locations for manufacturing, warehousing, office uses and assembly, involving limited generation of nuisances. Typically, uses include industrial activities that do not generate objectionable noise, smoke, odor, dust, noxious gases, glare, heat, fire hazards, vibration, and industrial wastes. Density/Intensity: average Floor Area Ratio of.30; approximately 500 square feet per employee. Increases in FAR up to.35 may be considered subject to discretionary and environmental review. Heavy Industrial. This designation is intended to provide locations for industrial manufacturing, warehousing, office uses, and assembly that do not fit into the Light Industrial designation. Uses typically include land-intensive manufacturing activities that may generate objectionable noise, smoke, odor, dust, noxious gases, glare, heat, fire hazards, vibration, and industrial wastes. Page 3-14 Public Review Draft Background Report

15 Land Use Town of Windsor General Plan Update Density/Intensity: average Floor Area Ratio of.25; approximately 700 square feet per employee. Increases in FAR up to.50 may be considered subject to discretionary and environmental review. Public/Quasi-Public/Institutional. This designation is intended to provide locations for public facilities, public utilities, and public gathering facilities. Typical uses include public schools, libraries, government, police, and fire facilities; corporation yards; private utilities; the wastewater treatment plant; and cemeteries. Density/Intensity: varies with the type of facility. Parks. This designation is intended to provide locations for public parks, open space, and recreation facilities. Density/Intensity: typically Floor Area Ratios are less than.1, with development limited to club houses, gymnasiums, or storage facilities; may include open space protection around sensitive areas, such as creeks or trees, with passive recreational uses only. Neighborhood Center/Mixed Use. This designation is intended to provide locations where local residents of a neighborhood can gather to socialize, shop, or recreate. Neighborhood centers include a diversity of compatible land uses that can occur within the same building or site. Typical combinations could include public, retail, and childcare uses. This designation is most appropriate along a major thoroughfare and adjacent to the Village Residential designation. Density/Intensity: varies depending on the particular set of uses approved for the neighborhood center. Boulevard Mixed Use. This designation is intended to provide locations for more intensive mixeduse development with extensive pedestrian-oriented frontage on a boulevard street, near transit service and stops. Boulevard mixed use allows a diversity of compatible land uses that can occur within the same building or site. Typical uses could include public facilities or plazas, residential, retail, office, and childcare services. This designation is most appropriate along or within one block of a boulevard and adjacent to higher-density residential designations. Density/Intensity: Varies depending on the particular set of uses approved for the area. At its most intense, Boulevard Mixed Use would accommodate buildings of four stories in height with densities up to 32 units per acre. Regional Mixed Use. This designation is intended to provide locations where more intensive employment opportunities, residential, shopping, visitor-serving, and institutional uses are mixed to serve Windsor and the surrounding community. The Regional Mixed Use designation allows a diversity of compatible land uses that can occur within the same building or site. Typical combinations could include public facilities or plazas, retail, higher-density residential, hotel and motel accommodations, conference facilities, health services, and office uses. This designation is most appropriate in areas with convenient access to U.S Density/Intensity: Varies depending on the particular set of uses approved for the area. At its most intense, Regional Mixed Use would accommodate buildings of four stories in height with densities up to 32 units per acre. Town Center/Mixed Use. This designation is intended to provide locations where the entire community can gather to socialize, shop, or recreate. The Town Center designation allows a diversity of compatible land uses that can occur within the same building or site. Typical combinations could Public Review Draft Background Report Page 3-15

16 include public, retail, higher-density residential, hotel and motel accommodation, and office uses. This designation is appropriate for the Downtown and Lakewood Drive areas. Density/Intensity: varies depending on the particular set of uses approved for the area. Page 3-16 Public Review Draft Background Report

17 Slusser Rd Hembree Ln Brooks Rd Conde Ln Figure 3-3 General Plan Designations 101 IVER R RUSSIAN Arata Ln Chalk Hill Rd WRIGHT C REEK Starr Rd Eastside Rd Windsor River Rd Windsor Rd Conde Ln POOL CREEK Pleasant Ave Reiman Ln Old Redwood Hwy Mitchell Ln Windsor Rd Shiloh Rd Shiloh Rd Faught Rd W I N DSO R CREEK Airport Blvd F MARK W E ST CREEK River Rd Fulton Rd 101 River Rd Legend Major Roads Railroad Waterways Town Limits Urban Growth Boundary Planning Area General Plan Designations Residential Compact Residential High Density Residential Medium-High Density Residential Mobile Home Park Village Residential / Medium Density Residential Sourrounding Residential Estate Residential Rural Residential Mixed Use Boulevard Mixed Use Regional Mixed Use Neighborhood Commercial Town Center / Mixed Use Commercial/Industrial Retail Commercial Service Commercial Gateway Commercial Public/Quasi-Public General Business Public/Quasi-Public Light Industrial Heavy Industrial Parks/Open Space Open Space Parks Miles Data Source: Town of Windsor; 2014

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19 Land Use Town of Windsor General Plan Update Land Use Designation Acreages Table 3-2 shows the total acreage for all land use designations within the Planning Area, Urban Growth Boundary, and Town Limits. The General Plan designates all lands within the Urban Growth Boundary and the Town Limits, as well as isolated outside the Urban Growth Boundary that provide services (e.g., wastewater treatment plant) (See Figure 3.3). Residential designations make up 59 percent of all designated land and 64 percent of designated lands within the Urban Growth Boundary. Commercial and industrial designations make up 15 percent of all designated lands and 16 percent of designated lands within the Urban Growth Boundary. Approximately 13 percent of the Urban Growth Boundary is designated either Parks or Open Space. TABLE 3-2 GENERAL PLAN DESIGNATIONS Town of Windsor Planning Area, Urban Growth Boundary, and Town Limits July 2014 Planning Area 1 Urban Growth Town Limits Boundary General Plan Designation Percent Percent Percent Acres Acres Acres of Total of Total of Total Compact Residential % % % High Density Residential % % % Medium-High Density Residential % % % Mobile Home Park % % % Village Residential/ Medium Density Residential % % % Surrounding Residential/Low- Medium Density Residential 1, % 1, % 1, % Estate Residential/Low Density Res % % % Rural Residential/Very Low Density Residential % % % Boulevard Mixed Use % % % Regional Mixed Use % % % Neighborhood Center/Mixed Use % % % Town Center/Mixed Use % % % Retail Commercial % % % Service Commercial % % % Gateway Commercial % % % General Business % % % Light Industrial % % % Heavy Industrial % % % Open Space % % % Parks % % % Cemetery/School/ Wastewater Treatment Plant % % % Total 5, % 4, % 4, % 1 Shows all designated land within the Planning Area. However, not all of the Planning Area is designated in the General Plan. This column includes land the Urban Growth Boundary and incorporated islands outside the Urban Growth Boundary, but within the Town Limits. Public Review Draft Background Report Page 3-19

20 TABLE 3-2 GENERAL PLAN DESIGNATIONS Town of Windsor Planning Area, Urban Growth Boundary, and Town Limits July 2014 Planning Area 1 Urban Growth Town Limits Boundary General Plan Designation Percent Percent Percent Acres Acres Acres of Total of Total of Total Source: Town of Windsor, Regulatory Setting General Plan Law (California Government Code Section 65300). California Government Code Section regulates the substantive and topical requirements of general plans. State law requires each city and county to adopt a general plan for the physical development of the county or city, and any land outside its boundaries which bears relation to its planning. The California Supreme Court has called the general plan the constitution for future development. The general plan expresses the community s development goals and embodies public policy relative to the distribution of future land uses, both public and private. This section describes the zoning regulations that implement the Windsor General Plan. Major Findings The Town of Windsor Zoning Code is the primary regulatory mechanism used to implement the Windsor General Plan. The Zoning Ordinance establishes 19 zoning districts and four overlay districts. Residential zoning districts cover 46 percent of the town. Special purpose districts, which include the Open Space, Planned Development, Public/Institutional, and Recreation zoning districts, cover another 40 percent of the town. Commercial districts and industrial districts each account for 7 percent of the town area. Existing Setting Zoning is the primary tool used to implement the general plan. A major difference between the general plan and the zoning ordinance is that the general plan provides guidance on the location, type, and density of new growth and development over the long term, while the zoning ordinance provides detailed development and use standards for each parcel of land. The zoning ordinance divides the community into zoning districts and specifies the uses that are permitted, conditionally permitted, and prohibited within each district. The Town of Windsor Zoning Ordinance and the Sonoma County Zoning Ordinance are used to regulate the use and development of property within the Windsor Planning Area. The zoning documents for the Town of Windsor are described below. Town of Windsor Zoning Districts Page 3-20 Public Review Draft Background Report

21 Land Use Town of Windsor General Plan Update The Town of Windsor Zoning Ordinance establishes 19 base zoning districts, shown on Table 3-3. Each zoning district has development standards that are designed to protect and promote the health, safety, and general welfare of the community and to implement the policies of the General Plan. The zoning districts only apply to land within the Town Limits and the standards serve to preserve the character and integrity of existing neighborhoods. Within a typical district, there are regulations related to land use, lot size and coverage, setbacks, and building heights. The 19 base zoning districts established by the Windsor Zoning Ordinance are: ER (Estate Residential) District. The ER zoning district is intended for areas suitable for singlefamily residential development on larger parcels. The allowable density ranges from 0.2 to 3 dwelling units per acre. The ER zoning district is consistent with the Estate Residential land use designation of the General Plan. SR (Surrounding Residential) District. The SR zoning district is intended for areas appropriate for a mixture of housing types. The primary housing type is single-family homes; however, duplexes and triplexes are permitted within the allowable density range. The allowable density ranges from 3 to 6 dwelling units per acre. The SR zoning district is consistent with the Surrounding Residential land use designation of the General Plan. VR (Village Residential) District. The VR zoning district is intended for areas appropriate for a mixture of housing types on smaller lots. The allowable density ranges from 5 to 8 dwelling units per acre. The lower end of the density range may be appropriate adjacent to the SR or ER zoning districts, with the higher end of the range being appropriate near neighborhood centers, parks, and transit stops. The VR zoning district is consistent with the Village Residential land use designation of the General Plan. MDR (Medium Density Residential) District. The MDR zoning district is intended for areas appropriate for multi-family housing, and is suitable near activity centers and along major thoroughfares. This zoning district allows for a variety of residential opportunities including small single-family units, row houses, townhomes, and small apartment complexes. The allowable density ranges from 8 to 12 dwelling units per acre. The MDR zoning district is consistent with the Medium- High Density Residential land use designation of the General Plan. HDR (High Density Residential) District. The HDR zoning district is intended for areas appropriate for high-density, multi-family housing. Typical dwelling units include townhouses and apartments. The allowable density ranges from 12 to 16 dwelling units per acre. The HDR zoning district is consistent with the High Density Residential land use designation of the General Plan. CR (Compact Residential) District. The CR zoning district is intended for areas of compact high density housing, especially in association with nearby mixed-use development and near transit corridors or stops. Typical dwelling units include apartments, condominiums, and town homes. The allowable density ranges from 12 to 24 units per acre for CR-24 zoned sites to 12 to 32 units per acre for CR-32 zoned sites. The CR zoning district is consistent with the Compact Residential land use designation of the General Plan. NC (Neighborhood Center Commercial) District. The NC zoning district is applied to areas where residents can shop, socialize, or recreate. This zoning district includes a mix of land uses that would be appropriate along major thoroughfares and adjacent to the MDR zoning district. Different NC land uses can be located in the same building or on the same site, and include retail, child care, Public Review Draft Background Report Page 3-21

22 and public uses. The NC zoning district is consistent with the Neighborhood Center/Mixed Use land use designation of the General Plan. CC (Community Commercial) District. The CC zoning district is applied to areas appropriate for a range of local- and community-serving retail and service land uses, including restaurants, shops, personal and business services. The CC zoning district is consistent with the Retail Commercial and General Business land use designations of the General Plan. TC (Town Center Commercial) District. The TC zoning district is intended to provide attractive areas within the Old Town where the community can gather to socialize, shop, recreate, or live. This zoning district includes diverse, compatible land uses that can be developed on the same site, and where desirable, in the same building. Appropriate land uses include retail, high-density residential, public uses, hotels and motels, and offices. The TC zoning district is consistent with the Town Center/Mixed Use land use designation of the General Plan. SC (Service Commercial). The SC zoning district is applied to areas suitable for land intensive personal and business service uses, including automobile repair shops, construction equipment sales and rental yards, service stations, and outdoor recreation uses. The SC zoning district is consistent with the Service Commercial land use designation of the General Plan. GC (Gateway Commercial). The GC zoning district is applied to areas along highways that are visually prominent entryways into the town. Land uses in the GC zoning district are intended to serve the region, and include retail and tourist-related uses. Given the prominent locations of this zoning district, development is expected to be of particularly high quality in design. The GC zoning district is consistent with the Gateway Commercial land use designation of the General Plan. BC (Boulevard Commercial). The BC zoning district is applied to areas of intensive mixed use development with extensive pedestrian-oriented frontage on a boulevard street, near transit service and stops, and is intended primarily to serve local residents and businesses. A mix of compatible land uses is encouraged within the same building or on the same site, and could include public facilities or plazas, residential, retail, office, and childcare uses. The BC zoning district is consistent with the Boulevard Mixed-Use land use designation of the General Plan. RC (Regional Commercial). The RC zoning district is applied in locations where more intensive employment opportunities, residential, shopping, visitor-serving, and institutional uses are mixed to serve Windsor and the surrounding community. This zoning district provides for a mix of diverse and compatible land uses in the same building or on the same site, and could include public facilities or plazas, retail, higher-density residential, hotel/motel accommodations, conference facilities, health services, and office uses. The RC zoning district is consistent with the Regional Mixed Use land use designation of the General Plan. LI (Light Industrial) District. The LI zoning district is applied to areas appropriate for light industrial and manufacturing, warehousing, offices, and assembly uses. Land uses allowed in the LI zoning district should not create objectionable noise, smoke, odor, dust, noxious gases, glare, heat, vibration, or industrial wastes. The LI zoning district is consistent with the Light Industrial land use designation of the General Plan. HI (Heavy Industrial) District. The HI zoning district is applied to areas appropriate for a wider variety of land uses that are more land-intensive manufacturing uses than allowed in the LI district. These include industrial manufacturing, warehousing, offices, and assembly that may generate Page 3-22 Public Review Draft Background Report

23 Land Use Town of Windsor General Plan Update objectionable noise, smoke, odor, dust, noxious gases, glare, heat, vibration, and industrial wastes. The HI zoning district is consistent with the Heavy Industrial land use designation of the General Plan. OS (Open Space) District. The OS zoning district is applied to areas in the Town with natural resource values to be conserved, and also to areas that have hazardous conditions (such as floodways). The OS zoning district is consistent with the Open Space land use designation of the General Plan. PD (Planned Development) District. The PD zoning district is intended for sites where the Town desires to achieve a particular mix of uses, appearance, land use compatibility, or special sensitivity to natural resources, including oak trees and vernal pools. The PD zoning district is consistent with all land use designations of the General Plan. See Section (PD District Standards and Procedures) for specific requirements applicable to the PD district. REC (Recreation) District. The REC zoning district is applied to locations appropriate for the development of parks and recreational facilities. The REC zoning district is consistent with the Parks land use designation of the General Plan. PI (Public/Institutional) District. The PI zoning district is applied to areas appropriate for public facilities, utilities, and public gathering facilities including: public schools, libraries, government offices, etc. The PI zoning district is consistent with the Public/Quasi-Public/Institutional land use designation of the General Plan. Zoning District Acreages Table 3-3 shows the total acreage for all zoning districts within the Town of Windsor. The Windsor Zoning Ordinance zones all land within the Town Limits. Residential zoning districts make up 46 percent of the town. Special purpose districts, which include the Open Space, Planned Development, Public/Quasi-Public, and Recreation zoning districts, make up 40 percent of the town. Commercial districts and industrial districts each account for seven percent of the town. TABLE 3-3 ZONING DISTRICTS Town of Windsor July 2014 Zoning District Acres Percent of Total Compact Residential % High Density Residential % Medium Density Residential % Village Residential % Surrounding Residential 1, % Estate Residential % Boulevard Commercial % Regional Commercial % Neighborhood Center Commercial % Town Center Commercial % Public Review Draft Background Report Page 3-23

24 TABLE 3-3 ZONING DISTRICTS Town of Windsor July 2014 Zoning District Acres Percent of Total Community Commercial % Service Commercial % Gateway Commercial % Light Industrial % Heavy Industrial % Open Space % Planned Development % Public/Quasi-Public % Recreation % Total 4, % Source: Town of Windsor, There are also four overlay zones in the Windsor Zoning Ordinance. Overlay districts provide guidance for development in addition to the standards and regulations of the primary zoning district, where important site, environmental, safety, compatibility, or design issues require particular attention in project planning. There are 31 acres of overlay districts in the town. Table 3-4 shows the total acreage of each of the four overlay zoning districts. TABLE 3-4 OVERLAY ZONING DISTRICTS Town of Windsor July 2014 General Plan Designation Acres Percent of Total Active Use Frontage Overlay % Entertainment Overlay % Historic Overlay % Office Overlay % Total % Source: Town of Windsor, Regulatory Setting California Government Code Section In counties, general law cities, and charter cities with a population of more than two million, zoning provisions must be consistent with the general plan. Charter cities with a population of under two million are exempt from the zoning consistency requirement unless their charters provide otherwise. The Town of Windsor is a general law city and is, therefore, required to have the zoning consistency. Page 3-24 Public Review Draft Background Report

25 Slusser Rd Hembree Ln Brooks Rd Conde Ln Figure 3-4 Zoning Districts 101 IVER R RUSSIAN Arata Ln Chalk Hill Rd WRIGHT C REEK Starr Rd Eastside Rd Windsor River Rd Windsor Rd Conde Ln POOL CREEK Pleasant Ave Reiman Ln Old Redwood Hwy Mitchell Ln Windsor Rd Shiloh Rd Shiloh Rd Faught Rd W I N DSO R CREEK Airport Blvd MARK W E ST CREEK River Rd Fulton Rd 101 River Rd Legend Major Roads Railroad Waterways Town Limits Urban Growth Boundary Zoning Districts Residential Compact Residential High Density Residential Medium Density Residential Commercial Boulevard Commercial Regional Commercial Neighborhood Center Commercial Town Center Commercial Industrial Special Purpose Districts Light Industrial Open Space Heavy Industrial Planned Development Public/Institutional Recreation F Planning Area Village Residential Surrounding Residential Community Commercial Service Commercial Miles Estate Residential Gateway Commercial Data Source: Town of Windsor; 2014

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27 Land Use Town of Windsor General Plan Update The purpose of this section is to identify the potential amount of residential, commercial, and industrial development that could occur within the Windsor Town Limits, Urban Growth Boundary, and Planning Area under the existing land use designations and policies established by the current Windsor General Plan. A glossary of key terms is included at the end of Chapter 3. Major Findings Under the existing General Plan, Windsor has a capacity for 4,842 new residential units and 3,196,503 square feet of non-residential floor area within the Urban Growth Boundary. Existing Setting Development capacity refers to the theoretical amount of development, existing and future, that could potentially occur in the town based on the land use standards and regulations of the Town s General Plan. This information establishes the baseline of planned capacity of land for both jobs and housing in the current General Plan. Establishing the holding capacity of the current General Plan is the starting point for the development of land use alternatives to accommodate future projected employment and population growth in the 2040 General Plan. The capacity of existing and future housing is expressed in the number of dwelling units and the resulting population. Employment capacity is expressed in the amount of building square footage and number of jobs that can be accommodated. There are two components to the holding capacity of the General Plan; the amount of existing development in place today (or as most recently reported), and the future capacity of vacant and underused lands within the General Plan horizon of Future capacity is further described by the capacity within the existing Town Limits and the capacity within the Urban Growth Boundary. This distinction is important because the land within the Town Limits is eligible for approval of new development, whereas lands outside the Town Limits will require annexation prior to being eligible for approval of development. ABAG Jobs Housing Connection Strategy Forecast Plan Bay Area is a long-range integrated transportation and land-use/housing strategy through 2040 for the San Francisco Bay Area. The Association of Bay Area Governments (ABAG) and the Metropolitan Transportation Commission (MTC) track and forecast the region s demographics and economic trends to inform and guide Plan Bay Area investments and policy decisions. The Jobs Housing Connection Strategy, which was released in July 2013, provides housing and employment projections for each jurisdiction in the Bay Area. This forecast projects that Windsor will add 1,910 housing units and 2,150 jobs between 2010 and Public Review Draft Background Report Page 3-27

28 TABLE 3-5 FORECAST OF HOUSING UNITS, POPULATION, AND EMPLOYMENT Town of Windsor Change Housing Units 9,540 11,460 +1,910 Population 26,787 33,600 +6,813 Employment 5,610 7,760 +2,150 Source: ABAG Plan Bay Area, Final Forecast of Jobs, Population, and Housing, July Potential Development Capacity Planned and Approved Projects Planned and approved projects include large developments with approved land use entitlements, pending building permit approval, in plan check, or under construction. There are 14 large planned and approved developments, including four residential projects, six mixed-use project, and four non-residential projects. Table 3-6 summarizes potential housing unit, population, non-residential square footage, and employment capacity from these projects. Together, these projects would result in an estimated 1,335 new housing units and 315,881 square feet of non-residential development. Vacant Land Vacant land includes the development capacity on the remaining vacant land in Windsor. Capacity calculation is based on known physical and regulatory constraints and historical development practice. Table 3-7 summarizes potential housing unit, population, non-residential square footage, and employment capacity of planned vacant land, excluding planned and approved projects. Based on allowed density and typical Floor Area Ratios (FAR), planned infrastructure, and development history, vacant land in Windsor can support an additional 3,654 housing units and 2,880,622 square feet of non-residential development. Page 3-28 Public Review Draft Background Report

29 Land Use Town of Windsor General Plan Update TABLE 3-6 DEVELOPMENT CAPACITY FROM PLANNED AND APPROVED PROJECTS Single Family Expected Units Total Town of Windsor 2014 Population 1 Office Projected Non-Residential Square Footage Hotel Strip Com. Service Com. Light Industrial Multifamily Warehouse Total Employment 2 Residential Esposti Park Apartments Windsor Mill ,076 Victoria Oaks Lytton Residential Development Mixed Use Town Green V Bldg R and S ,172 7, Shiloh Sustainable Village ,000 63, Windsor Live/Work ,200 4, Windsor Gateway ,000 40, Richardson St Mixed-Use ,550 2,550 6 Bell Village ,157 83,500 83, Non-residential Holiday Inn ,200 64, Sanderson Ford AutoDealership ,209 30, Mitchell Ln - office/warehouse - - 3,400 1,400 4, American Way - office/warehouse - - 2,700 6,775 6,775 16, Total 227 1,108 1,335 3,992 6,100 64, ,422 30,209 6,775 8, , Population based on 2010 Census estimate of 2.99 persons per household. 2 Employment estimates based on 300 square feet per employee for office uses, 400 square feet per employee for strip commercial uses, 450 square feet per employee for shopping center and service commercial uses, 500 square feet per employee for light industrial uses,700 square feet per employee for heavy industrial uses, 1,000 square feet per employee for warehouse uses, and 1,150 square feet per employee for hotel uses. Public Review Draft Background Report Page 3-29

30 3 Approval of 80 single family units at Victoria Oaks will require a General Plan amendment and Zoning Code amendment to Village Residential. Source: Town of Windsor, TABLE 3-7 DEVELOPMENT CAPACITY ON VACANT LAND Town of Windsor 2014 General Plan Designation Acres Average FAR 1 Max Density Expected Density 1 Expected Units 2 Single Family Multifamily Total Population 3 Office Expected Non-Residential Square Footage 4 Strip Commercial Shopping Center Service Commercial Light Industrial Heavy Industrial Total Employment 5 Compact Residential ,414 High Density Residential Medium Density Residential Village Residential/ Medium Density Residential Surrounding Residential/Low- Medium Density Res. Estate Residential/ Low Density Res ,150 1,150 3, Boulevard Mixed Use , , , ,385 2,514 Regional Mixed Use ,566 81,566 69, , Neighborhood Center/Mixed Use Town Center/Mixed Use ,780 21,780 43, , , , Page 3-30 Public Review Draft Background Report

31 Land Use Town of Windsor General Plan Update TABLE 3-7 DEVELOPMENT CAPACITY ON VACANT LAND Town of Windsor 2014 General Plan Designation Acres Average FAR 1 Max Density Expected Density 1 Expected Units 2 Single Family Multifamily Total Population 3 Office Expected Non-Residential Square Footage 4 Strip Commercial Shopping Center Service Commercial Light Industrial Heavy Industrial Total Employment 5 Service Commercial , , Retail Commercial , , Gateway Commercial , , General Business ,586 60,440 60, , Light Industrial , ,106 1,040 Heavy Industrial , , ,880, ,084 1,570 3,654 10, , ,063 91, , , ,475 6,929 Total 2 1 Typical density and FAR was based on a net acre assumption accounting for necessary infrastructure and facilities. To get the typical density, the maximum density was recalculated based on an assumption on what is average for new development. 2 Unit capacity for vacant land was calculated by multiplying acres and the typical density. For mixed use designations, average FAR was used for non-residential square footage calculations only and expected density was used for residential calculations. 3 Population based on 2010 Census estimate of 2.99 persons per household. 4 Total non-residential square footage was calculated by multiplying the acres by the average FAR and then converting the acres to square feet. The total non-residential square footage was then divided into non-residential categories based on anticipated uses. 5 Employment was estimated using 300 square feet per employee for office uses, 400 square feet per employee for strip commercial uses, 450 square feet per employee for shopping center and service commercial uses, 500 square feet per employee for light industrial uses, 700 square feet per employee for heavy industrial uses, 1,000 square feet per employee for warehouse uses, and 1,150 square feet per employee for hotel uses. Source: Town of Windsor, Public Review Draft Background Report Page 3-31

32 Development Capacity Summary Table 3-7 summarizes potential housing unit, population, non-residential square footage, and employment capacity in Windsor under the existing General Plan. The table documents potential capacity accommodated by planned and approved projects as well as vacant land. Under the existing General Plan, Windsor has a capacity for 4,989 new residential units and 3,196,503 square feet of non-residential floor area. TABLE 3-7 Development Capacity Summary Town of Windsor 2014 Expected Units 2 General Plan Designation Single Family Multifamily Total Population Non- Residential Square Feet Employment Planned and Approved Projects ,108 1,335 3, , Vacant Land 2 2,084 1,570 3,654 10,927 2,880,622 6,929 Total 2,311 2,678 4,989 14,919 3,196,503 7,596 1 See Table See Table 3-6 Source: Town of Windsor, 2014 Regulatory Setting There is no regulatory setting for this chapter. As previously described in Sections 3.4 and 3.5, the Town of Windsor General Plan and Zoning Code are the main planning documents that regulate land use within Windsor. In addition, there are several other plans, policies, and guidelines that influence land uses within the Planning Area. These plans, policies, and guidelines are discussed in this section. A glossary of key terms is included at the end of Chapter 3. Major Findings The County of Sonoma has land use authority over all unincorporated land in Sonoma County. The Sonoma County General Plan designates all land in the Windsor Planning Area outside the current Town Limits. The Sonoma County General Plan has nine land use designations found in the Windsor Planning Area, including General Commercial, General Industrial, Land Intensive Agriculture, Diverse Agriculture, Public/Quasi-Public, Resources and Rural Development, Rural Residential, Limited Commercial, and Urban Residential. The Station Area/Downtown Specific Plan encompasses approximately 390 acres and includes Windsor Station, the Downtown core, and surroundings; two large approved and pending development projects; several opportunity sites; and community destinations including Windsor Page 3-32 Public Review Draft Background Report

33 Land Use Town of Windsor General Plan Update High School, Keiser Park, the Town Green, Windsor Creek Elementary School, and the Civic Center. The majority of the Station Area/Downtown Specific Plan is designated by the Association of Bay Area Governments (ABAG) as a Priority Development Area (PDA). The Specific Plan seeks to advance the Metropolitan Transportation Commission (MTC) Transportation-Oriented Development Policy, which has a goal of reaching an average of 2,200 units within a half-mile of commuter rail stations, as well as evolve Windsor s PDA from a Suburban Center to a Transit Town Center. In 2002, the Windsor Town Council approved the Shiloh Road Village Vision Plan. The Plan area includes 80 acres located along Shiloh Road between Highway 101 and Old Redwood Highway. The Plan calls for a variety of housing types at densities of up to 32 units per acre within a number of pedestrian-oriented neighborhoods. In 2005, the Town Council adopted General Plan and Zoning Code amendments that implement the Vision Plan. Existing Setting Sonoma County General Plan The Sonoma County General Plan 2020 was adopted in September The General Plan contains countywide goals and policies. The General Plan consists of 10 elements: Land Use Element (Amended December 13, 2011) Housing Element Agricultural Resources Element Open Space and Resource Conservation Element (Amended August 24, 2010) Water Resources Element Public Safety Element Circulation and Transit Element (Amended August 24, 2010) Air Transportation Element (Amended January 24, 2012) Public Facilities and Services Element Noise Element (Amended October 23, 2012) Public Review Draft Background Report Page 3-33

34 Slusser Rd Brooks Rd Hembree Ln Conde Ln Figure 3.5 Sonoma County General Plan Designations 101 Arata Ln Chalk Hill Rd Westside Rd Eastside Rd Starr Rd Windsor Rd Conde Ln Old Redwood Hwy Pleasant Ave Reiman Ln Mitchell Ln Faught Rd Shiloh Rd Shiloh Rd Airport Blvd River Rd Fulton Rd 101 Legend Major Roads Railroad Waterways Town Limits Windsor Town Green Urban Growth Boundary County General Plan Designations Land Intensive Agriculture Planning Area Diverse Agriculture Resources & Rural Development Rural Residential Urban Residential Recreation/ Visitor-Serving Commercial Public/Quasi Public General Commercial 1F Limited Commercial Limited Industrial Miles Data Source: Sonoma County; 2014

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36 Sonoma County has updated Land Use, Open Space and Resource Conservation, Circulation and Transit, Air Transportation, and Noise Elements since their 2008 adoption. See Figure 3-5 for a map of County land use designations within the Windsor Planning Area. The Sonoma County General Plan has several land use designations found in the Windsor Planning Area. They include: Land Intensive Agriculture. This category shall enhance and protect lands capable of and generally used for animal husbandry and the production of food, fiber, and plant materials. The soil type and climate support relatively high production per acre of land. The objective in land-intensive agricultural areas shall be to establish densities and parcel sizes that are conducive to continued agricultural production. Diverse Agriculture. This category shall enhance and protect those land areas where soil, climate, and water conditions support farming but where small acreage intensive farming and part time farming activities are predominant. In these areas farming may not be the principal occupation of the farmer. The primary purpose of this category is to protect a full range of agricultural uses and to limit further residential intrusion consistent with the policies of the Agricultural Resources Element. Resources and Rural Development. This category allows very low-density residential development and is also intended to accomplish various resource conservation goals. Rural Residential. This category provides for very low-density residential development on lands that have few if any urban services but have access to County-maintained roads. Urban Residential. This category includes land planned for a full range of urban services for residential development. It accommodates a variety of housing types, such as stick built and manufactured homes, and all tenure types, depending upon the density allowed in the Land Use Element under State law. Public/Quasi-Public. This category provides sites that serve the community or public need and are owned or operated by government agencies, non-profit entities, or public utilities. However, public uses are also allowed in other land use categories. The Public Facilities and Services Element establishes policies for location of public uses in these other categories. General Commercial. The General Commercial category provides sites for intense commercial uses that primarily serve a mix of business activities and the residential and business community as a whole rather than a local neighborhood. These uses provide for comparison shopping and services which are ordinarily obtained on an occasional rather than daily basis. This category is also intended to provide opportunities for a mix of residential and commercial use in Urban Service Areas. General Industrial. This category provides sites for industrial activities and employment that require urban services and that primarily serve an urban population. The intent of the category is to assure that industrial development is compatible with adjacent land uses, infrastructure, and environmental quality. This category also may provide locations for workforce housing for persons employed in adjoining businesses. Limited Commercial. This category provides sites where commercial activities are limited. Particular limitations may be specified in the Land Use Policies for the Planning Areas. Limited commercial land is intended to accommodate retail sales and services for the daily self sufficiency of local rural or urban neighborhoods or communities in keeping with their character. This category is also intended to provide opportunities for a mix of residential and commercial use in Urban Service Page 3-36 Public Review Draft Background Report

37 Land Use Town of Windsor General Plan Update Areas and for consideration of a single family residence or Single Room Occupancy units in place of commercial uses allowed by zoning. Single Room Occupancy Units may only be considered in Urban Service Areas. Station Area/Downtown Specific Plan The Town of Windsor adopted the Station Area/Downtown Specific Plan in The Plan establishes a cohesive transit-oriented community with links to the town and the region. It sets forth the framework for the next era of downtown Windsor development with an expanded core oriented around the Town Green. The Plan supersedes the Town of Windsor 1997 Downtown Plan. It provides an overall vision for the area, goals and policies for each topic, development standards/zoning regulations, and design guidelines for development. It also includes implementation programs with timelines and responsibilities. The objectives of the Station Area /Downtown Specific Plan, established at the outset of the planning process, were to: Establish a land use plan and policy framework to guide future development and redevelopment toward land uses that support transit ridership. Improve motorized, non-motorized, and transit connectivity between the Railway Station Area (Station Area) and existing adjacent commercial and residential areas. Develop urban design standards and implementation strategies that promote walkable and livable environments. Prepare a comprehensive environmental document (Programmatic EIR) to facilitate subsequent environmental reviews of changes to existing policy/regulatory documents, capital improvement projects, and private development proposals. Work collaboratively with the community in establishing a vision for the area, and to educate and inform the public about the specific plan process and transit-oriented development (TOD) concepts. The Plan Area, shown in Figure 3-6, encompasses approximately 390 acres and includes the railway station, the Downtown core, and surroundings; two large approved and pending development projects; several opportunity sites; and community destinations including Windsor High School, Keiser Park, the Town Green, Windsor Creek Elementary School, and the Civic Center. The majority of the Plan Area is designated by the Association of Bay Area Governments (ABAG) as a Priority Development Area (PDA). This program encourages smart growth principles along routes of regional significance. The Specific Plan seeks to advance the Metropolitan Transportation Commission Transportation-Oriented Development Policy, which has a goal of reaching an average of 2,200 units within a half-mile of commuter rail stations, as well as evolve the Windsor PDA from a Suburban Center to a Transit Town Center. At the center of the Plan Area, the Downtown core and Town Green serve as important community anchors. The primary activity streets include McClelland Drive along the Town Green and Windsor Road from Windsor River Road to the Civic Center. The surrounding areas located to the west of the Sonoma Marin Area Rail Transit (SMART) corridor are primarily single-family residential neighborhoods and are not expected to change substantially. Public Review Draft Background Report Page 3-37

38 FIGURE 3-6 STATION AREA/DOWNTOWN SPECIFIC PLAN AREA Source: Windsor Station Area/Downtown Specific Plan, The Windsor Station Area/Downtown Specific Plan envisions a mixed-use, pedestrian-scaled, transitoriented district, centered on the Town Green. To promote this vision, the land use designations adopted by the Plan create a loop of active uses around the Town Green. Figure 3-7 shows the adopted General Plan land use designations within the Plan Area. Much of the area around the Town Green is designated Town Center. The two large approved and pending projects (Bell Village and Windsor Mill) are designated Compact Residential. These projects are labeled in Figure 3-7. Page 3-38 Public Review Draft Background Report

39 Land Use Town of Windsor General Plan Update FIGURE 3-7 STATION AREA/DOWNTOWN SPECIFIC PLAN LAND USE DESIGNATIONS Source: Windsor Station Area/Downtown Specific Plan, Shiloh Road Village Vision Plan In 2002, the Windsor Town Council approved the Shiloh Road Village Vision Plan. The Plan area includes 80 acres located along Shiloh Road between Highway 101 and Old Redwood Highway. The Plan calls for relatively high-intensity mixed-use development following New Urbanist design principles. The Plan calls for a variety of housing types at densities of up to 32 units per acre within a number of pedestrian-oriented neighborhoods. In 2005, the Town Council adopted General Plan and Zoning Code amendments that implement the Vision Plan. The Vision Plan is intended to yield a high quality aesthetic environment that benefits property owners, merchants, residents, and visitors alike. Preparation of the Vision Plan involved extensive public participation, including a multi-day design charrette, a visual preference survey and numerous additional public meetings. The Vision Plan Poster divides the Vision Plan Area into the following neighborhoods: Public Review Draft Background Report Page 3-39

40 Garden Apartments. The Garden Apartments consist of one-to three-story apartment complexes at 24 to 32 dwelling units per acre. Parking would be provided in an underground structure, carports, and on-street spaces. Garden Cottages. The Garden Cottages consist of a low-density housing product at six dwelling units per acre (approximately 1,200 square feet each). The Cottages provide opportunity to increase density by adding "granny flats" above garages. There are detached garages accessed through alleys and the dwelling units front onto a linear pedestrian courtyard. Shiloh Townhomes. Shiloh Townhomes consist of attached townhomes with a density of approximately 16 to 20 dwelling units per acre. They include a combination of single- and two-story massing with attached garages at the back. Kendall Courtyards. Kendall Courtyards consist of two- and three-story attached townhomes centered around a plaza-like court for parking and activities. They include heavy landscaping, trees, and circulation through an alley connector. Mixed Use. Mixed Use consists of commercial/office, commercial residential, office/residential mixed use projects at or near roads. Building heights are not to exceed four stories or 60 feet. Additional parking is placed behind structures or within structures. Mixed Use neighborhoods feature high-density allowances of 32 units per acre and a pedestrian-friendly environment with outdoor dining opportunities and small plazas between buildings. Village Townhomes. Village Townhomes consist of medium-density townhomes with a "woodsy" character, grid streets with front facing porches, and attached shared garages accessible from alleys. Dwelling units are approximately 1,600 square feet in size at 12 to 28 units per acre, decreasing in density as they move toward southern open space. Wysteria Cottages consist of an enclave single family neighborhood with attached units (12 to 24 units per acre) and garages set back from street. Old Redwood Highway Streetscape Design Guidelines The Old Redwood Highway Streetscape Design Guidelines were adopted in 2010 to guide the design of future development along Old Redwood Highway. The Town of Windsor has determined that Old Redwood Highway be developed as an integral part of the downtown, with strong visual and functional relationships to the Town Green. The circulation design objective for Old Redwood Highway is to calm traffic, accommodate safe bicycle routes, and create pedestrian-friendly linkages and activity areas. The Streetscape Design Guidelines include roundabouts, reverse-angle parking, generous sidewalk widths (except where preserving trees), corner bulb-outs, crosswalk refuge medians, bus stop turnouts and shelters, color-defined bike lanes, and bike lane escape paths. The Streetscape Design Guidelines also provide areas for public art, kiosks, and social gathering. Proposed improvements include pedestrian connections to the Town Green. This plan strives to define Old Redwood Highway as an integral component of the downtown, physically connected to, and visually consistent with the character of the Town Green district. Detailed design elements referenced in the Streetscape Design Guidelines include suggestions for site and street furnishings, lighting elements, art opportunities, paving types and finishes, roadway and parking improvements, and candidate tree selections. Specific examples of the detailed design elements are included within the document. Page 3-40 Public Review Draft Background Report

41 Land Use Town of Windsor General Plan Update Lytton Residential Development Environmental Assessment The Lytton Residential Development Environmental Assessment was prepared for the US Bureau of Indian Affairs (BIA) to support an application from the Lyttton Rancheria of California for a residential development in western Windsor. The Assessment, released in 2009, describes the Tribe s plans for approximately 92 acres that will be developed as residential housing, a community center, and associated facilities. The BIA will use the Environmental Assessment to determine if the project will result in adverse effects to the environment. Regulatory Setting The regulatory setting for this section is described within the existing setting. This section discusses the plans, policies, and regulations of regional agencies that affect growth and development within the Windsor Planning Area. Significant changes in State legislation have occurred since the adoption of the current 2020 General Plan. This section discusses changes in regional planning. Understanding the roles and responsibilities of these agencies is vital to ensure effective inter-jurisdictional cooperation and coordination. A glossary of key terms is included at the end of Chapter 3. Major Findings Plan Bay Area includes the region s Regional Transportation Plan, a demographic and economic forecast, the Regional Housing Needs Allocation, and the Sustainable Communities Strategy. Plan Bay Area integrates transportation, housing, and land use goals for the entire region. The plan uses priority development areas (PDAs) to focus growth in areas with good transit connectivity. Windsor has one PDA, the Windsor Redevelopment Area PDA, and is forecasted to accommodate a 20 percent increase in housing units and 38 percent increase in employment from 2010 to Climate Action 2020 is a collaborative effort among the Cities of Cloverdale, Cotati, Healdsburg, Petaluma, Rohnert Park, Santa Rosa, Sebastopol, Sonoma, and Windsor, and the County of Sonoma to take a regional approach to further actions in reducing GHG emissions communitywide by working with residents, community stakeholders and local experts to create Community Climate Action plans for each city and the County. It is anticipated that Climate Action 2020 will be adopted by all participating jurisdictions by spring Existing Setting Plan Bay Area and the Sustainable Communities Strategy Plan Bay Area is an integrated long-range transportation and land-use/housing plan for the San Francisco Bay Area. It includes the Bay Area s Regional Transportation Plan, which the Metropolitan Transportation Commission (MTC) updates every four years, and the Association of Bay Area Governments (ABAG) demographic and economic forecast, which is updated every two years. Additionally, ABAG administers the State-required Regional Housing Needs Allocation (RHNA) process. State law requires that the RHNA process be coordinated with the Sustainable Communities Strategy. Public Review Draft Background Report Page 3-41

42 MTC and ABAG prepared Plan Bay Area, which was adopted in July This Plan includes a Sustainable Communities Strategy (SCS), which coordinates land use, housing, and transportation for the nine-county Bay Area region. The primary goal of the SCS is to reduce greenhouse gas emissions for cars and light-duty trucks in the nine-county region. Plan Bay Area grew out of the California Sustainable Communities and Climate Protection Act of 2008 (California Senate Bill 375), which requires each of the state s 18 metropolitan areas to reduce greenhouse gas emissions from cars and light trucks. The law requires that the SCS promote compact, mixed-use commercial and residential development. To meet the goals of SB 375 more of the future development is planned to be walkable and bikable and close to public transit, jobs, schools, shopping, parks, recreation, and other amenities. To this end, Plan Bay Area directs the majority of the regional housing growth to local priority development areas (PDAs). The SCS directs much of Windsor s future housing development and employment to the Windsor PDA. The Windsor Redevelopment Area PDA forms the boundary of the Windsor Station Area/Downtown Specific Plan, and is shown in Figure 3-6. Between 2010 and 2040 Plan Bay Area projects that the area will see a 20 percent increase in housing units and 38 percent increase in employment. Climate Action 2020 (Community Climate Action Plan) Climate Action 2020 is a collaborative effort among the Cities of Cloverdale, Cotati, Healdsburg, Petaluma, Rohnert Park, Santa Rosa, Sebastopol, Sonoma, and Windsor, and the County of Sonoma to take a regional approach to further actions in reducing GHG emissions communitywide by working with residents, community stakeholders and local experts to create Community Climate Action plans for each city, town, and the County. Through a public planning process led by the Regional Climate Protection Authority, these communities are seeking community-driven ideas to improve public health and environmental quality, increase resiliency, save energy and money, reduce greenhouse gas emissions and prepare for the impacts of climate change throughout Sonoma County. The climate actions included in Climate Action 2020 will identify and prioritize actions that will achieve shared goals for a more resilient and sustainable Sonoma County. It is anticipated that Climate Action 2020 will be adopted by all participating jurisdictions by spring The document will create a set of strategies that Windsor and the other jurisdictions can use to help reduce the amount of greenhouse gases produced. The strategies will address key sectors including building energy, transportation, water, waste, and agriculture. Regulatory Setting The regulatory setting for this section is described within the existing setting. This section addresses the State requirement of considering the impact of new growth on military readiness activities carried out on military bases, installations, and operating training areas. A glossary of key terms is included at the end of Chapter 3. Major Findings There are no military branches or Special Use Airspaces in Sonoma County. There is an Instrument Military Training Route to the northwest of the Planning Area. However, since the Instrument Page 3-42 Public Review Draft Background Report

43 Land Use Town of Windsor General Plan Update Route is not located within the General Plan Planning Area, the Town is not required to notify the military of any planned development. Existing Setting Military Air Operations There are no military branches or Special Use Airspaces in Sonoma County. As shown in Figure 3-8, there is an Instrument Military Training Route to the northwest of the Planning Area. Instrument Routes are airspace below 10,000 feet mean sea level developed to be flown, to the maximum extent possible, under instrument flight rules (IFR) or instrument mode. Instrument routes are used by the Department of Defense and associated Reserve and Air Guard units for the purpose of conducting low altitude navigation and tactical training in both IFR and visual flight rules (VFR) weather conditions below 10,000 feet MSL at airspeeds in excess of 250 knots indicated airspeed (IAS). However, since the Instrument Route is not located within the General Plan Planning Area, the Town is not required to notify the military of any planned development. The California Military Land Use Compatibility Analyst (CMLUCA) helps planners and local governments like Windsor determine if their project has the potential to affect areas important to military readiness. The CMLUCA was developed by the California Natural Resources Agency in conjunction with California Governor s Office of Planning and Research (OPR). The CMLUCA can help easily determine if a project, in this case the General Plan, triggers the military notification requirement. Specifically, the Windsor General Plan Planning Area would need to include land operated by a military branch or within a Military Training Route or a Special Use Airspace. Regulatory Setting SB 1468, GC Section (a)(2). Pursuant to GC section (a)(2), the land use element shall consider 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. Any development that seriously impacts or hinders the capacity of military bases, installations, and operating and training areas to carry out their routine activities is considered encroachment or incompatible land use. Public Review Draft Background Report Page 3-43

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45 Slusser Rd Brooks Rd Figure 3-8 Military Overflight Areas 101 Chalk Hill Rd Westside Rd Faught Rd Reiman Ln Conde Ln Shiloh Rd Westside Rd River Rd River Rd Legend Major Roads Railroad Waterways Town Limits MTR in California Urban Growth Boundary IR - Instrument Route Planning Area SR - Slow Route Windsor Town Green VR - Visual Route F Miles Data Source: California Military Land Use Compatibility Analyst; 2014

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47 Land Use Town of Windsor General Plan Update State law requires Windsor to determine if there are any disadvantaged unincorporated communities (DUC) inside the Town s sphere of influence and outside the Town Boundary. Once identified, the Town must provide analysis of water, wastewater, stormwater drainage, and structural fire protection needs or deficiencies for each of the identified communities. This section addresses the requirements of SB 244. A glossary of key terms is included at the end of Chapter 3. Major Findings While there is one small area within the Windsor Sphere of Influence that is consistent with both the parcel density and block group income thresholds necessary to be considered a disadvantaged unincorporated community, further analysis revealed that this area should not be considered lowincome and, therefore, is not considered a disadvantaged unincorporated community in the context of SB 244. Existing Setting In order to qualify as a disadvantaged unincorporated community, the land must be located in an unincorporated area outside Town Limits and inside the Sphere of Influence, have a specified minimum parcel density, and provide low income housing. The Town used the following methodology to identify disadvantaged unincorporated communities. Parcel Density The Town analyzed groupings of parcels that resemble the density of suburban and urban communities, assuming that groups of parcels that were small and close together could form a community (more than 10 dwelling units in close proximity). For the community analysis the Town calculated the number of parcels per square mile. The goal of this step was to find clusters of development outside Town Limits and inside the Sphere of Influence. Parcel densities were calculated using the centroid (or middle point) of each parcel. Each point represents a parcel. Areas with a higher density of centroids indicate places with greater densities of development. Low-Income Status Next, the Town used U.S. Census block group data to compare the income status of local households relative to households across the state. The Town used 2000 Census data because it was the most comprehensive dataset at the block group geography that is currently (2014) available. The 2010 Census did not include income data, and the more recent American Community Survey (ACS) used too small a sample size to produce reliable data for rural, unincorporated areas. In accordance with the definition of disadvantaged communities described in SB 244, the analysis filtered by median household income below 80 percent of the State median household income. In 2000 the median household income of the State of California was $47,493. Any census block group with a median income of less than $37,994 (80 percent of $47,493) was included in the analysis. Block groups can be large in size in rural areas because there are fewer people living there. Public Review Draft Background Report Page 3-47

48 There are several limitations to this data. First, it is out-of-date; there have been several shifts in local and national economies since Secondly, the U.S. Census Bureau has historically undercounted rural populations, people of color, and those who are not native English speakers. Finally, the size of a census block group is often much larger than the small communities of concern. For example, a census block group may include many wealthy households as well as a cluster of low-income families. This block group will have a resulting high median income and may have to be excluded. Post Processing Refinements and Results As described above, parcel density and the low-income status thresholds are necessary to be considered a DUC. Based on the methodology used, there is one small area within the Windsor Sphere of Influence that satisfies both the parcel density and block group income thresholds necessary to be considered a possible DUC. This area, identified in Figure 3-9 as a DUC candidate site, is located along the south side of Shiloh Road, west of Old Redwood Highway, and includes approximately 20 parcels. However, based on further analysis, the DUC candidate site should not be considered low income and, therefore, is not considered a disadvantaged unincorporated community in the context of SB 244. As previously discussed, the size of a census block group is often much larger than the small communities of concern. The only relevant census block with a median income less than 80 percent of the statewide median income is located in the southeast corner of the Planning Area. The median income of this census block is $34,659. This census block extends south of the Sphere of Influence to include the Mobile Home Estates and Colonial Park Inc. mobile home parks. These two mobile home parks contain significantly more households than the DUC candidate site and are the driving factor behind the low median household income of the block group. According to online listings on Zillow.com, the median sale price is currently (2014) $487,900 in Windsor. While none of the homes in this area have recently been sold, Zillow provides an online home valuation that estimates market value. This estimate is not an appraisal, but it can be used as a basic indicator of a home s value. According to Zillow.com, the average home value of the homes within the DUC candidate site is approximately $565,000. Since the valuation of the homes within the DUC candidate site is higher than the median sale price of all of Windsor, it is unlikely the area in question is low income. Furthermore, the block group immediately north of the DUC candidate site has a median household income of $75,943 and an average home value of approximately $600,000 according to Zillow.com. This means that the DUC candidate site has an average home value comparable to a block group with a household median income 60 percent higher than the statewide average. Based on this analysis and local knowledge of the parcels in question, this area should not be considered a disadvantaged unincorporated community. Page 3-48 Public Review Draft Background Report

49 Figure 3-9 SB 244 Analysis Hembree Ln Census Block Group Median Household Income: 75,943 Old Redwood Hwy Shiloh Rd Shiloh Rd Census Block Group Median Household Income: $54,769 Old Redwood Hwy Census Block Group Median Household Income: $34,659 Census Block Group Median Household Income: $50, Legend Major Roads Railroad Waterways Town Limits Urban Growth Boundary/ Sphere of Influence Planning Area Candidate Disadvantaged Unincorporated Community Miles F Census Block Groups Data Source: US Census, 2000; Town of Windsor, 2014