5.9 LAND USE Existing Conditions Historic Land Use Trends Existing Land Use Distribution
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1 5.9 LAND USE This section describes the existing land use pattern and land use planning/regulatory framework in the City of Fontana. It also evaluates potential long-term land use impacts such as physically dividing an established community and consistency with environmental planning efforts. This section does not evaluate potential impacts on habitat conservation or natural community conservation plans; these are discussed in Section 5.3. Several comments regarding land use and planning were received in response to the Notice of Preparation, particularly with regard to land use compatibility. To the extent the issues relate to the significance criteria, they are addressed in the Impact section below Existing Conditions Historic Land Use Trends There have been four Fontanas over the last 150 years, and Fontana is currently facing a new transition. First, permanent vineyard settlements encroached on the Native American societies in the San Bernardino Valley in the 1880s to the early 20th century. After the arrival of A.B. Miller, the Fontana Farms Partnership of Hens and Oranges spanned 1906 to Kaiser Steel remade Fontana into a steel town between 1942 and Most recently, Fontana in the 1980s began to transition to an identity as an affordable suburb in the sprawling metropolitan world of Southern California. This most recent transformation reached its peak just before the Great Recession of After riding the real estate bubble, Fontana joined other communities in the Inland Empire as one of the most battered areas by the recession, with high unemployment, slashed real estate prices, high levels of foreclosure, and almost no construction. Fontana has gradually recovered from the recession. Now, as the third most populous city in the Inland Empire, Fontana is poised to build on its success as a residential city and enter a new period of positive transformation Existing Land Use Distribution The City of Fontana encompasses approximately 37 square miles of incorporated area, with an additional fifteen square miles in the City s Sphere of Influence (SOI). The majority of the SOI is located in the unincorporated island west of the city limits. Also located within the SOI is an area north of I-15 to the national forest boundary with pockets of land adjacent to the eastern city limits. Residential land uses account for nearly 50% of the occupied or used (not vacant) land in Fontana. Since much of the vacant land has been entitled for residential development, the majority of land is expected to be in residential use in the future. Foothill Boulevard, Sierra Avenue, Valley Boulevard, and SR-210 are the primary commercial corridors of the city. The heaviest industrial land uses are concentrated in the southwest, including areas within Fontana s SOI. Fontana also has 27 specific plans, of which 17 are fully developed, five are partially developed, and five are undeveloped
2 Figure Existing Land Use 5.9-2
3 Figure Proposed Land Use 5.9-3
4 Figure Proposed Land Use Changes 5.9-4
5 Existing Planning and Regulatory Frame Work Southern California Association of Governments (SCAG) The SCAG is responsible for regional planning in the six-county Southern California area, which encompasses Los Angeles, Imperial, Orange, Riverside, San Bernardino, and Ventura counties. SCAG provides a framework to coordinate local and regional decisions regarding future growth and development and prepares future growth forecasts for the region. As the designated Metropolitan Planning Organization for the area, SCAG s responsibilities include researching and developing plans for transportation, growth management, hazardous waste management, and air quality based on the regional growth projections (SCAG 2015). San Bernardino County Local Agency Formation Commission (LAFCO) The San Bernardino County LAFCO is a State-mandated, independent agency with countywide jurisdiction over changes in organization and boundaries of cities and special districts within San Bernardino County, including San Bernardino (LAFCO 2018). The San Bernardino LAFCO has the responsibility to ensure the establishment of an appropriate, sustainable, and logical municipal level government structure for the distribution of efficient and effective public services. As discussed above, three unincorporated areas lie within the SOI of the City of Fontana. San Bernardino County General Plan The Fontana General Plan area contains unincorporated areas that are within the City s SOI and thus under the jurisdiction of the San Bernardino County General Plan. San Bernardino County began a process to update its General Plan with a target adoption date of 2019 The Countywide Plan is intended to go well beyond a traditional general plan to become a comprehensive Countywide Plan that complements and informs the Countywide Vision by taking into account all services not just land-use planning provided by County Government, and the unique values and priorities of each unincorporated community. It will serve as a guide for County decision-making, financial planning, and communications. (San Bernardino County, 2018). City of Fontana General Plan The General Plan, required for every city and county by the State of California, is the City s comprehensive community planning document. Any planning or zoning actions the City takes must be consistent with the General Plan. The General Plan consists of several mandatory elements, along with many optional elements. The Fontana Forward plan includes these elements, stand-alone or combined, as required by statute (Gov. Code section 65302): land use; circulation; housing; conservation and open space combined; noise and safety combined; and environmental justice as aspects of several other elements. In addition, the plan includes optional elements on health, economic development, infrastructure, sustainability and resilience, and a Downtown Area Plan. All elements were updated in 2018, except for the Housing Element, which was updated in
6 The new Land Use Element establishes the following land use categories: 1. Residential Estates 2. Residential Planned Community 3. Single-Family Residential 4. Medium-Density Residential 5. Multi-Family Residential 6. Multi-Family Medium/High 7. Multi-Family High 8. Residential Trucking 9. Community Commercial 10. General Commercial 11. Light Industrial 12. General Industrial 13. Public Facilities 14. Recreational Facilities 15. Public Utility Corridors 16. Open Space 17. Regional Mixed Use 18. Walkable Mixed-Use Downtown and Corridors (Proposed) 19. Walkable Mixed-Use Urban Village (Proposed) Land Use Acreage Comparison The Future Land Use Map established two new mixed-use categories for Walkable Mixed Use (WMU). These categories are very different in character from the land use categories that have been retained from the Existing Land Use Map. Walkable Mixed-Use Downtown and Corridors (WMXU-1) residential densities range from 24 to 39 dwelling units per acre and non-residential uses have a maximum Floor Area Ratio (FAR) of 2.0. Walkable Mixed-Use Urban Village (WMXU-2) residential densities range from 12 to 24 dwelling units per acre, and non-residential uses can have up to an FAR of 1.0. These two new mixed-use land use designations total approximately 2,057 acres. Table is a chart of the difference in acreages of the 2003 General Plan and the 2018 General Plan Update
7 Table Difference in Acreages of the 2003 General Plan and the 2018 General Plan Update Land Use 2003 General Plan (acres)** 2018 General Plan Update (acres)* Difference +/- Residential 15,723 15, Commercial 2,425 1,170-1,255 Industrial 8,149 8, Mixed-Use 1,075 2,564 +1,489 Public 3,710 3, Open Space 1,569 1, Total 33,428* 33,454* *Source: General Plan Update (Chapter 15), City of Fontana **Source: 2003 Environmental Impact Statement, City of Fontana * Total acreage includes roads and right-of-way not shown on chart City of Fontana Zoning and Development Code (Zoning Code) Chapter 30 of the Municipal Code, the City s Zoning Code, is the General Plan s primary implementation tool. Whereas the General Plan is a policy document and sets forth direction for land use policy-level decisions, the Zoning Code is a regulatory document that establishes specific standards for the use and development of all properties in the City, as well as subdivision regulations. The Zoning Code regulates development intensity using a variety of methods, such as setting limits on building setbacks, yard landscaping standards, and building heights. The Zoning Code also indicates the permitted land uses in the various zones. City of Fontana v. SOI Land Use Policies Land use policies from properties within the City s SOI are governed by the San Bernardino County General Plan. The Fontana General Plan applies land use designations that represent the City s preferences and intent on governing these properties, if annexed. Table (City and County Land Use Designation Comparison) compares the land use designations between the City and the County for properties within the SOI
8 Table City and County Land Use Designation Comparison Unincorporated Parcels City of Fontana San Bernardino County Designation Density/Intensity Designation Density/Intensity Mountain OS: Open Space N/A SD-RES Special Development - Residential Speedway Bloomington P-UC: Public Utility Corridors P-UC: Public Utility Corridors R-E: Residential Estates R-E: Residential Estates C-C: Community Commercial WMXU-1 Walkable Mixed-Use Corridor & Downtown N/A FW Floodway N/A N/A IN Institutional N/A Minimum lot size 5 acres 2 du/ac RL Rural Living Minimum lot size 2.5 acres 2 du/ac RS-1 Single Residential 1 acre minimum FAR (CG) General Commercial FAR, 3 39 du/ac (CG) General Commercial CN Neighborhood Commercial RS Single Residential RM Multiple Residential I-L: Light Industrial FAR IC Community Industrial 1 du/ac N/A N/A N/A 4 du/ac 20 du/ac.45 1 FAR I-G: General Industrial FAR IR Regional Industrial.55 1 FAR I-G: General Industrial FAR SD-COM Special Development Commercial I-G: General Industrial FAR KC-SP Kaiser Commerce Center/Specific Plan R-SF: Single Family Residential N/A N/A du/ac RS Single Residential 4 du/ac P-PF: Public Facilities N/A RS Single Residential 4 du/ac R-SF: Single Family Residential C-G: General Commercial R-SF: Single Family Residential du/ac RM Multiple Residential 20 du/ac FAR CG General Commercial N/A du/ac RS Single Residential 4 du/ac P-PF: Public Facilities N/A IN Institutional N/A 5.9-8
9 Specific Plans A specific plan is a detailed plan for the development of a particular area. Specific plans provide specifications for the permitted land use types, development standards (setbacks, heights, landscape, architecture, etc.), circulation, and infrastructure improvements broadly defined by the General Plan. By law, a specific plan must be consistent with the General Plan. Specific plans are often used to ensure multiple property owners and developers adhere to a single common development plan, as well as to provide flexibility in development standards beyond those contained in the zoning ordinance as a means of achieving superior design Thresholds of Significance The General Plan Update would result in a significant land use impact if it would: A. Physically divide an established community. B. Conflict with any applicable land use plan, policy, or regulation of an agency with jurisdiction over the project adopted for the purpose of avoiding or mitigating an environmental effect. C. Conflict with any applicable habitat conservation plan or natural community conservation plan Environmental Impacts A. The General Plan Update would not result in a division of an established community. Division of a neighborhood may occur with the construction of a new freeway, railway, or other large transportation project that may run through an established community. Impacts associated within the division of an established community include a loss of community identity, disruption or loss of connectivity, and a degradation of the historic character of an area. The General Plan Update represents a policy-level project designed to direct long-term growth within the planning area. The City has many long-established residential neighborhoods as well as newer developments. The proposed updated General Plan Land Use Map would retain the City s commercial, industrial, and residential character. However, the Walkable Mixed-Use land uses are introduced in the City s downtown core. Neither would they indirectly lead to the division of an established community, as the changes would not trigger the development of major new infrastructure (such as major roads or freeways, power easements or water conveyance facilities), which could physically divide existing developed areas of the City. The Walkable Mixed-Use Downtown and Corridors (WXMU-1) and Walkable Mixed-Use Urban Village (WMXU-2) are designed to promote pedestrian and bicycle-friendly development, increase housing diversity, increase transit use, and ensure economic vitality in the downtown and along important corridors. These new mixed-use land use categories would not impact established communities since the land use categories encourage infill development on vacant parcels and 5.9-9
10 enhance community character. The Walkable Mixed-Use Zone is proposed to provide flexibility in zoning and development of downtown s vacant and underutilized lots. In addition, the mixeduse land uses allow for safe and convenient walking to nearby shopping and maintenance of established neighborhoods through the following goals and policies in the General Plan Update. Therefore, potential impacts would be less than significant. Table General Plan Update Goals and Policies Goals Goal 2: Fontana development patterns support a high quality of life and economic prosperity. Goal 3: Downtown is a dynamic center of activity with new housing options, walkable, environments, and a mixture of uses attracting residents and visitors. Goals 4: Compact, walkable, mixed-use centers occupy key locations along corridors to be served by transit in the future and at intersections where neighborhood retail and diverse housing options can succeed. Policies A. Preserve, protect, and connect existing master-planned neighborhoods. B. Recognize and respect that the established design patterns of many of Fontana s existing neighborhoods are unique and different from policies for new and future neighborhoods. C. Create Connected Neighborhood planning districts that link established master planned neighborhoods to each other and to nearby school, park, and shopping destinations with walking and biking routes. G. Ensure that existing and future employment districts have appropriate land use, zoning, and urban design transitions to nearby neighborhoods. B. As a top-level priority, undertake complete streets improvements along Sierra and Arrow to rebrand Downtown businesses, customers, and infill development. E. Support partnerships between major employers, educational institutions, and for-profit and non-profit housing developers. F. Collaborate with educational institutions and arts organizations to develop education and arts centers along Sierra Avenue. L. Collaborate with public transportation agencies to coordinate the location and design of new centers with existing and planned transit stops. M. Work collaboratively with existing property owners and businesses to develop a vision plan and development standards and guidelines for the Valley Boulevard Corridor. O. Consolidate parcels along Valley Boulevard to promote redevelopment for valuable and job-producing uses. P. Ensure that existing and new businesses along the north side of Valley Boulevard are appropriately buffered from existing and future neighborhood development to the north
11 B. The General Plan Update would not conflict with an applicable land use plan, policy, or regulation of an agency with jurisdiction over the project, as discussed in other sections of this environmental impact report (EIR). None of the changes in the General Plan Update would affect plans, policies, or regulations of other agencies that have jurisdiction within the planning area. In fact, some of the changes in the General Plan Update are proposed to reflect and address new policies and regulations of other agencies such as those relating to climate-change. With regard to state policy frameworks, the goals, policies, and actions of the General Plan Update are consistent with State of California climate-change policy framework. The vision of the California Climate Strategy is to reduce greenhouse gas emissions to 40% below 1990 levels by This is consistent with the City of Fontana s General Plan Update Goals and Policies. Specifically Goal 4, which states Fontana meets the greenhouse gas reduction goals for 2030 and subsequent goals set by the state. With regards to the San Bernardino County General Plan, the goals, policies, and actions of the Fontana General Plan Update are consistent with the adopted San Bernardino Countywide Vision. The San Bernardino Countywide Vision illustrates the support for creation of environments and protection of rural lifestyles to design senses of place that reflect local community values and history (SBCV, 2011). Similarly, the City of Fontana General Plan Update reiterates these visionary elements by encouraging a complete price range of housing from affordable to luxury and the improvement of livability and energy efficiency through smart planning, design, and technology. Goals and Policies of the General Plan Update are consistent with the San Bernardino County s General Plan. The Countywide Plan is intended to go well beyond a traditional general plan to become a comprehensive Countywide Plan that complements and informs the Countywide Vision by taking into account all services, not just land-use planning, provided by the County Government. San Bernardino County has jurisdiction over land uses within the SOI and there is a proposed application for a project within the SOI. The proposed project is subject to a variety of Federal, State, and locally adopted plans designed to mitigate environmental impacts or to preserve important resources. Plans and policies related to specific resource issues are addressed in those specific sections of this EIR. No conflicts between the specific resources and a policy or regulation of another agency would occur as a result of the proposed project. Therefore, impacts would be less than significant. C. No impact related to conflicts between the proposed General Plan Update and existing Habitat Conservation Plans would occur. None of the land use changes proposed in the General Plan Update would conflict with the North Fontana Multiple Species Habitat Conservation Plan (MSHCP), since no land use changes are proposed in affected areas. Therefore, impacts would be less than significant
12 Table General Plan Update Goals and Policies Goals Goal 1: Fontana continues to preserve sensitive natural open space in the foothills of the San Gabriel Mountains and Jurupa Hills. Goal 2: Large city parks and open spaces include plantings and natural areas attractive to birds and other wildlife. Goal 4. The City of Fontana has a nonet-loss policy for public parkland. Policies A. Evaluate the potential costs and benefits of permanent protection of sensitive foothill lands. B. Work with regional conservation organizations, such as the Inland Empire Resource Conservation District and regional conservation land trusts, to conserve sensitive foothill lands. A. Design parks and landscaped public spaces to include plantings attractive to birds and other regional wildlife. B. In large parks, create natural areas with educational information to raise public awareness about local environments. C. Consider wildlife value when landscaping public spaces A. Develop the legal framework and language to pass a no-net-loss ordinance for city-owned park land listed in the California Protected Lands database. B. Research and write an ordinance to require that Cityowned public park land (as defined in the ordinance) cannot be transferred or converted to another use without an analysis of alternatives, public hearings, and substitute land of equal value (as defined) received by the City Mitigation Measures No significant impacts are anticipated. Therefore, mitigation measures are not required References California Climate Change Strategy. May 10, General information from website: San Bernardino Countywide Vision. June 30, General information from website: LAFCO General information from website: San Bernardino County, General information from website: SCAG General information from website:
13 SCAG (Southern California Association of Government) Regional Transportation Plan: Sustainable Communities Strategy, April SCAG (Southern California Association of Government) General information from website:
14 5.9-14
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