Document elcerrito_gov_doc_bcd089acac

CHAPTER 4 COMMUNITY DEVELOPMENT AND DESIGN The Community Development and Design Chapter is extremely important because it, together with the Transportation and Circulation Chapter, provides the foundation for growth on which the other chapters are based. This chapter includes the state-mandated land use and housing elements, as well as the county-required Growth Management Element. Community design, not a required topic, is also included because of the importance the residents of El Cerrito place on improving the quality of development. This chapter is divided into the following subsections: • Land Use • Community Design • Housing • Growth Management LAND USE Land use goals and policies establish the overall type and location of activities, while the community design goals and policies establish the “quality” of those places that contain or facilitate the activities. Land use is also closely related to housing and growth management because both have spatial implications. A. Setting Uses of Land The land area within the city limits of El Cerrito is approximately 2,386 acres or about 3.7 square miles, including vacant land and rights-of-way. Of this total, 1,193 acres are in residential uses. The city has approximately 8,537 tax assessor’s parcels. Residential El Cerrito has a predominantly residential pattern of land use. Multiple family dwellings are concentrated along both sides of the BART right-of-way and west of San Pablo Avenue near Central Avenue. Elsewhere, single-family homes spread eastward into the hills and westward beyond I-80 into a small area on either side of Potrero Avenue. Within these residential neighborhoods are support facilities such as schools, parks, recreation facilities, and open space. Almost 50 percent of the land area, or 1,193 acres, of El Cerrito is used for residential purposes. Of this total, 1,098 acres are occupied by single-family houses; 25 acres by duplexes, 69 acres by multifamily units, and 1 acre by hotels, motels, group housing, and trailer park units. The significant residential activity since the August 30, 1999 Community Development and Design 4-1 ---PAGE BREAK--- EL CERRITO GENERAL PLAN last general plan has been continued infill of single-family lots and major apartment development such as Del Norte Place, Civic Plaza, and El Cerrito Royale. Commercial Approximately 5 percent of the land area, or 113 acres, of El Cerrito is used for commercial purposes. Of this, 84 acres are used for retail, residential, and entertainment purposes, 8 acres for offices, 13 acres for auto services and sales, and 8 acres for wholesale and manufacturing purposes. Some significant changes that have recently taken place include the new Target store, Del Norte Marketplace, and conversion of some automobile-oriented uses to retail uses. Commercial development is almost exclusively concentrated along the San Pablo Avenue corridor with the greatest concentrations at the El Cerrito Plaza, the intersection of San Pablo and Moeser, and the Del Norte area. Region-serving retail facilities (Home Depot, Target, and Honda) are primarily located in the northern part of the corridor and at El Cerrito Plaza (although much less region-serving since the departure of the Emporium) along the city’s southern boundary. Two neighborhood commercial centers are located on Fairmount Avenue between Colusa and Ramona and on Stockton between Ashbury and Everett. Commercial office uses are located in the commercial corridor along San Pablo Avenue, in and adjacent to El Cerrito Plaza, and in the two neighborhood commercial areas (primarily in the Stockton-Norvell neighborhood, which contains several medical offices). As noted above, the commercial land-use category also includes automobile and industrial uses. These include several automotive-related uses along San Pablo Avenue, a lumber mill on Schmidt Lane, and a sheet metal processing plant on Kearney Street near Madison. Institutional Institutional uses consume 116 acres, or approximately 5 percent of the land area, of El Cerrito. Of this total, school and childcare facilities account for 48 acres, government and utilities for 47 acres, and other institutions for 21 acres. In recent years the only significant change has been the conversion of a portion of the Madera School site to residential uses. Chapter 6 provides a more complete description of institutional uses. Recreational/Open Space Approximately 16 percent of the land area, or 379 acres, of El Cerrito is used for recreational and open space purposes. Of this total, 181 acres are in public parks or recreational facilities, 33 acres in utility-owned open space, and 165 acres in private recreational facilities or open space. Open space areas are located throughout the city. Major areas within the city include the Mira Vista Country Club in the northeastern portion of the city, the Hillside Natural Area located near the center of the city, and several parks and playgrounds at schools (see Chapter 4-2 Community Development and Design August 30, 1999 ---PAGE BREAK--- EL CERRITO GENERAL PLAN Vacant Land As noted above, vacant land accounts for 124 acres, or approximately 5 percent of the land area, in El Cerrito. This low inventory of vacant land reflects the city’s maturity as it approaches build-out. This amount of developable vacant land has decreased in recent years due to the gradual infill of scattered sites. Compatibility Issues El Cerrito is fortunate in that the number of land-use compatibility issues is relatively limited. There are noise compatibility issues in the western part of the city, caused primarily by traffic on I-80 and by the BART system. (Although I-80 and BART noise can be nuisance in other parts of the city, the area where significant effects have been measured is limited to location generally west of Richmond Street.) There are also some fire-related compatibility issues in the eastern part of the city due to potential fire hazards in natural areas near residential neighborhoods. There are land-use compatibility issues, perhaps more potential than current, along the San Pablo Avenue corridor. Parking, noise, and scale of development (both recent and proposed) in this area have been raised as concerns by some residents. Some incompatibility exists, not so much because the actual uses are incompatible, but because of wide differences in building condition and maintenance. Also, vacant lots next to developed lots can be considered a compatibility problem because vacant lots are sometimes poorly maintained and because they can cause pedestrians to feel concerned about safety, especially at night. Economic Development Activities In 1999, the City began structuring a new economic development program which aims to retain and attract business and other activities, with the particular objective of improving the City’s fiscal well being. El Cerrito has a Redevelopment Agency, which was created in 1974. As of July 1, 1999, the City placed the Redevelopment Agency in an inactive status. The Agency remains a legal entity, however, and the City may find occasion in the future to activate the Authority of the Agency in support of broad economic development strategies. After years of relatively few developments and several significant setbacks, there are many signs of renewed developer interest and economic strength that hold promise for El Cerrito. Projects recently completed or under construction are transforming the areas around the Del Norte BART station. The potential to revitalize and transform the El Cerrito Plaza BART station site and the adjacent shopping center continues to attract the interest of developers. The next ten years may be critical in the transformation of the San Pablo Corridor into a vital center (or sequence of centers) for the city – a development that is critical for the city’s long-term financial health. By law, the Redevelopment Agency must address affordable housing needs through its redevelopment activities. While residential uses may be incorporated into new August 30, 1999 Community Development and Design 4-3 ---PAGE BREAK--- EL CERRITO GENERAL PLAN redevelopment projects near the BART stations (to support businesses as well as transit use), the manner in which such housing is to be incorporated in these projects—if at all—is a subject of considerable community debate. B. Trends Due to the largely “built-out” nature of the city, its existing development pattern will remain largely unchanged in the 20-year planning period. The city is characterized by single-family homes in most areas, with commercial uses and higher density housing clustered along the San Pablo Corridor and in the vicinity of the two BART stations. Although the overall pattern is not expected to change, some replacement of and changes in individual businesses will take place. In most cases, issues of development compatibility can be ameliorated on a site-by- site basis through good design and site planning. Building and site design standards, and a City design and development review process will ensure proper setbacks, heights, building massing, scale, and style of new development. In addition, design guidelines should be adopted in order to provide continuity of judgement in the development review process, as changes take place over time among staff and members of the Planning Commission and Design Review Board. Growth Strategy This General Plan calls for a balanced growth strategy with emphasis on retail and office uses. The Plan assumes that all commercial growth and most residential growth will take place within the San Pablo Avenue corridor. Specifically, the Plan assumes 189,350 square feet of additional retail space, 166,570 square feet of additional office space, and 775 new housing units. Of these totals, the only development assumed to be someplace other than the San Pablo Avenue corridor are 90 housing units, which represent a combination of accessory units and infill of vacant lots. It should be noted that new retail and office space will actually be more than as indicated above because some existing retail and office space will be replaced by new development. No replacement of residential units is assumed, although some may occur. The balanced growth strategy calls for most of the growth to take place in three areas along San Pablo in order to take advantage of the two BART stations and a large area between the stations that offers an opportunity for a large-scale mixed-use concept. These focal points⎯Del Norte BART Station Area, Midtown Area, and El Cerrito Plaza Area⎯are shown on Figure 4, Development Concept. 4-4 Community Development and Design August 30, 1999 ---PAGE BREAK--- EL CERRITO GENERAL PLAN August 30, 1999 Community Development and Design 4-5 ---PAGE BREAK--- EL CERRITO GENERAL PLAN The land area breakdown in 1975, 1998, and 2020 (projected) is shown in Table 4-1. The only significant change between 1998 and 2020 is the conversion of 124 acres of vacant land to other uses. Table 4-1: Land Area by Type of Use Land Uses (acres) 1975 1998 2020 Residential 1,112 1,193 1,295 Commercial 105 113 120 Institutional* 185 113 115 Recreational & Open Space* 320 382 391 Rights of Way 456 461 465 Vacant 159 124 0 TOTAL 2,337 2,386 2,386 * The 1975 acreage figures for Institutional uses and Recreational & Open Space uses are based on a different classification system than is used for the 1998 and 2020 figures. Actual changes have been minimal. The following sections provide more detail on how and where growth is expected to occur. Eastern Residential Area This plan preserves the predominantly single-family neighborhoods in their current land uses. These neighborhoods are characterized by two major patterns of development: first, a “historic grid” street pattern from Richmond Street east to Navellier Street and Colusa Avenue, and second, a hillside curvilinear development pattern from Navellier Street and Colusa Avenue to the top of the ridgeline. The plan assumes that over the next twenty years the vacant lots in the residential areas will be infilled with new single family homes consistent with the density and development patterns (lot setbacks, building heights, lot coverage, etc.) of the surrounding land uses. In addition, it is likely that additional “in-law” units (known in El Cerrito as “accessory units”) will be constructed on existing single-family lots. Accessory units consist of small studios or one-bedroom apartments built within existing single-family houses or in small cottages in rear yard areas. These units often provide residences for family members, but may also be rented to non-family occupants, under El Cerrito’s regulations. New single-family homes will add to the value of surrounding property by creating newer, larger homes. Family activity patterns in the new homes (auto trips, night and day use, size of families, etc.) will be similar to surrounding families and present no significant conflicts. Infill of vacant lots will help reduce potential vandalism, loitering, and the cleanliness of the area. New homes may also reduce potential for grass fires on vacant lots, improve safety and security of the neighborhoods, and generally improve the quality of life for neighborhoods with new families and children. 4-6 Community Development and Design August 30, 1999 ---PAGE BREAK--- EL CERRITO GENERAL PLAN Ohlone Greenway Residential Area The Ohlone Greenway Residential Area currently consists of a mixture of single- and multifamily residential development extending west from Richmond Street in and around the BART tracks to Kearney Street in the central and southern portions of the City. Higher intensity development generally occurs on the blocks closer to the BART tracks and San Pablo Avenue. A preponderance of single-family homes occurs on the blocks to the east from Liberty Street to Richmond Avenue. This plan assumes that some of the existing older apartment buildings and single- family homes will be redeveloped with higher-density residential uses. In particular, older buildings in poor condition closer to San Pablo Avenue are the most likely candidates for replacement. Older “stucco box” apartment buildings will be replaced with more up-to-date and better quality apartments and condominiums. Higher-density apartments and condominiums will most likely replace some older single-family buildings, currently surrounded by apartments. New buildings will be designed to meet contemporary development standards (setbacks, open space and yards, building heights, onsite parking spaces, etc.) and are expected to be of higher-quality design than current structures in the area. Building ornamentation and landscaping should be sufficiently detailed as to make the property attractive from the sidewalk as well as the street. Building design should maintain the visual of the street edge, avoiding abrupt changes in scale and setbacks except where the presence of important public buildings churches, civic buildings, new library) would warrant. A major concern of the residential land use pattern in the Ohlone Greenway Residential Area is high levels of noise due to proximity of the BART tracks and San Pablo Avenue. New construction standards and development requirements are expected to mitigate interior noise levels by incorporating required sound barriers such as double-paned windows, wall insulation, and building orientation. However, noise from BART and traffic on San Pablo Avenue will affect users of yards and patios. New, higher intensity residential development will be compatible with surrounding residential uses in those blocks west of Liberty Street, where existing multifamily buildings presently exist. Land uses east of Liberty Street are generally single-family homes, and the Plan assumes that the design, style, and type of residential construction of any new development in the area will be similar to established development. Del Norte BART Station Area The Del Norte BART station area consists of the commercial areas along San Pablo Avenue adjacent to the El Cerrito Del Norte BART station north of Potrero Avenue and west of Key Boulevard. Currently this area consists of predominantly lower-intensity commercial uses, including “big box” retail establishments, fast-food restaurants, car sales, and two motels. The area contains the new mixed-use Del August 30, 1999 Community Development and Design 4-7 ---PAGE BREAK--- EL CERRITO GENERAL PLAN Norte Place development, which includes high-density residential units, built above ground-floor retail uses. A number of lots and buildings in the area are currently vacant or underutilized. It is assumed that over the next 20 years, these lots will be developed with a higher-intensity use. This plan assumes the development of current vacant and underused lots with a mix of residential units and offices with ground-floor commercial uses. It also assumes that new development will consist of mixed-use buildings on lots adjacent to San Pablo Avenue. Lower-density housing (townhouses, maximum three-story walk- ups) may replace a portion of the BART parking lots along Key Boulevard. The plan assumes that the retail uses will provide restaurants and services to both offices and residents, as well as to surrounding residential neighborhoods. Noise impacts to interior spaces from San Pablo and the BART tracks will be mitigated with double-paned windows and appropriate sound insulation. The mixed-use development will provide a more transit oriented development pattern and create a more pedestrian friendly environment. The greater mix of uses will also help support the retail activity in the area. This scenario will help reduce overall auto use and encourage transit use. El Cerrito Plaza Area The El Cerrito Plaza area consists of El Cerrito Plaza, El Cerrito Plaza BART property, and the area along both sides of San Pablo Avenue to just north of Central Avenue. The existing land uses include an underused and outdated community shopping center and BART parking lots. The existing shopping center layout and design sets retail stores back from San Pablo Avenue within a large surface parking lot. Some of the existing stores are vacant, the most notable vacancy being the one large department store at the Plaza, the former Emporium building. This General Plan encourages the development of a more balanced, mixed-use development at the Plaza and the surrounding area. Both retail and office uses will be encouraged in this area, most likely with retail on the ground floor. The plan does not preclude housing uses as part of a mix of uses in this area. This overall approach is compatible with surrounding land uses in the area. A mixed-use development pattern will support use of the BART transit system and reduce reliance on auto trips by local residents. The many different users will contribute to a lively and active street life during weekdays, evenings, and weekends. San Pablo Avenue Between the Del Norte BART Station Area and El Cerrito Plaza Area The area between the two BART station areas contains a mix of land uses including housing, office, retail, and more traditional industrial uses (lumberyard and a sheet metal plant). The development pattern is varied and includes auto-oriented “strip development,” several mixed-use office/retail centers, and limited housing. Many of the lots are small with retail stores that lack adequate onsite parking. Some of the 4-8 Community Development and Design August 30, 1999 ---PAGE BREAK--- EL CERRITO GENERAL PLAN older retail store buildings are in very poor condition or vacant. Much of the area on the west side of San Pablo Avenue is within the Richmond city limits. This plan assumes a mix of retail, office, and housing uses along San Pablo Avenue. This mix will include new retail, housing, and mixed-use developments (housing with ground-floor retail uses). The commercial development pattern will accommodate a range of retail types and services, including additional “big-box” uses (to the extent adequate sites can be assembled) as well as community and neighborhood uses. Opportunities also exist for creating a more intense mixed-use development pattern at the major cross-streets (Fairmount Avenue, Stockton Avenue, Moeser Lane, and Manila Avenue). In particular, the “Midtown” area, extending from south of Moeser Lane to north of Manila Avenue, provides a significant re-use opportunity as obsolete buildings are vacated and either rehabilitated or replaced. The range and variety of activity will create the most variation in activity during the day, night, and weekends. Auto traffic and pedestrian movements will be more balanced throughout the day and week. Noise levels from the street will be mitigated with construction and design techniques. Residential Areas West of San Pablo Avenue This plan assumes that the two residential neighborhoods west of San Pablo Avenue will have no major land use changes. West El Cerrito (the neighborhood west of Highway 80) will be maintained as a predominantly single-family residential neighborhood. A few individual single-family homes may be constructed on vacant lots in the area. All new homes will be compatible with the neighborhood. In the area near Central Avenue, this plan will allow for a small increase in residential units over time as older single-family houses are replaced by new multifamily structures (duplex, three- and four-unit apartments, condos, and townhouses). All new development will conform to local development standards and design and development review requirements. In most cases, the plan assumes that new construction will be better designed, providing for more amenities than the structures being replaced. C. Land Use Categories The general type and location of land uses in the City of El Cerrito for the next 20 years are shown in Figure 5, Land Use and Circulation. Definitions for each land use type or category are provided below. The allowable densities and intensities of development for all land use categories are described in the final section before the Goals and Policies. The Land Use and Circulation map will be amended in the event that the City makes changes to the designations of any land areas, or the routes or classifications of circulation facilities. August 30, 1999 Community Development and Design 4-9 ---PAGE BREAK--- EL CERRITO GENERAL PLAN Residential Residential land uses are areas suitable for dwellings. Residential land uses are divided into five subcategories based on dwelling unit density expressed as the number of allowable residential units on each “net” acre of land (“net acres” is the total site area less the area devoted to public streets). Planned Unit Development (PUD) communities, which allow for clustering of both detached and attached homes, can be incorporated into all residential categories if the overall development design is compatible with adjoining residential areas and the overall goals and objectives of the General Plan are accomplished. All residential areas allow for private uses such as parks, playgrounds, churches, day-care centers (both for children and the elderly), open spaces and home occupations, with appropriate zoning permits. The addition of accessory units on single-family lots is allowed in single-family zones. Very Low Density (Up to 6 dwelling units/net acre) The Very Low Density category of residential land uses is intended for single-family, residential units on large lots. Typically the Very Low Density category is to protect sensitive hillside areas from extensive development and to protect against hazards related to earthquakes, unstable terrain, and wild fires. In addition, Very Low Density land uses are also intended to protect sensitive environmental areas and features, and provide sites for larger, distinctive residences. Low Density (7 to 9 dwelling units/net acre) The Low Density category of residential land uses is intended to promote and protect single-family neighborhoods. Medium Density (10 to 20 dwelling units/net acre) The Medium Density category of residential land use accommodates more intensive forms of residential development while still remaining compatible with surrounding land uses. This category is intended to provide greater housing choice in the City for different family sizes and incomes. Medium density residential uses are intended to be located closer to community and retail services, such as neighborhood shopping centers, parks and open spaces areas, and near minor and major collector streets where greater access can be provided. This land use category includes a number of housing development types including duplexes, townhouse projects, apartments, and small-lot, single-family residential designs. High Density (21 to 35 dwelling units/net acre) The High Density residential land use category is intended to provide opportunities for multiple-family residential development in a well-designed environment. The range is intended to be located in areas where higher traffic volumes and buildings can be accommodated. These developments should be located outside of single- family residential communities, where services and transportation systems are adequate to serve the increased densities. 4-10 Community Development and Design August 30, 1999 ---PAGE BREAK--- EL CERRITO GENERAL PLAN Mixed-Use Commercial The Mixed-Use Commercial designation is intended primarily for all types of commercial uses and secondarily for residential uses or a combination of the two. The designation is intended to encourage ground floor, pedestrian friendly, retail sales and service uses with upper floors of office and residential uses. The Mixed- Use Commercial category applies to commercial activity ranging from neighborhood convenience stores to community shopping centers and regionally oriented specialty stores. In addition to retail stores, the Mixed-Use Commercial designation is also intended to allow for residential and office uses, including administrative, professional, medical and dental offices, and “high-tech” research and development uses and laboratories. The Mixed-Use Commercial designation also allows for limited, small- scale specialty manufacturing uses, such as arts and crafts, woodworking, and assembly processes, when located on sites compatible with surrounding neighborhoods. Parks and Open Space* This designation is applied to public and privately owned lands used for low- intensity, open space activities, such as hiking, walking, or picnicking; environmentally sensitive lands and habitats; creeks; and City parks and recreation facilities. Institutional and Utilities This designation is applied to public and privately owned lands used for activities such as private utilities (electrical, gas, water, and telecommunications), schools (both private and public), and other city, county, state or federal facilities. A major intent of this land use designation is to preserve and protect limited valuable resources, facilities and sites for possible future public use and to allow for careful consideration by the City Council of changes in land use when private institutional uses are no longer viable. Development Densities and Intensities The density and intensity ranges for the above land use categories are as shown on Table 4-2. Residential and mixed-use projects shall comply with both the floor-area ratio (FAR) requirements and the density requirements, except that the FAR for * In 1997, the City sold a site of approximately 2.76 acres between Moeser Lane and the PG & E transmission lines, near Seaview Avenue. The site was designated open space at the time of the sale. The buyer has stated an intention to subdivide the property for single- family lots. It is proposed through this General Plan to retain the open space designation of this property in contemplation of the property owner’s application for a General Plan amendment as part of the owner’s application package for subdivision approval. In this manner, the General Plan amendment for the property can be processed as part of development review for the subdivision thereby allowing for a clearer focus regarding development of this property. August 30, 1999 Community Development and Design 4-11 ---PAGE BREAK--- EL CERRITO GENERAL PLAN projects built pursuant to state-mandated density bonuses may be increased beyond the city’s allowable limits if necessary to accommodate the increased density. State laws and guidelines for General Plans require that maximum building intensities be stated in the Land Use element. The adoption of a FAR – the total floor space of a building divided by the area of its site – is a common and acceptable way of meeting the requirement to define a maximum intensity. The FAR provides an outside measurement of how much building may be developed on a site; it does not provide any specifications about how tall a building is or otherwise how it is shaped or how it looks. Thus, the FAR does little to define the character of a building or the quality of buildings within a neighborhood. Those tasks are left to other mechanisms that are more precise than the General Plan. To better regulate the quality and character of single buildings and groups of buildings, cities may specify various restrictions on height, bulk, coverage and setbacks of buildings, usually through the zoning ordinance. Another means of defining character is through adoption of a “form code” which may contain more definitive formulas of how buildings are shaped and how they relate to each other and to streets and open spaces. More qualitative standards addressing architectural style, materials, and other details are frequently set through a set of adopted design guidelines. State-mandated density bonuses and city incentives may be used for the same project, but in no case should any combination of city incentives and state- mandated density bonuses result in a density in excess of the maximum allowed under either program as shown in Table 4-2. For purposes of interpreting Table 4-2, the following definitions apply: • Density is the number of permanent residential dwelling units per total net acre of land in the development site. • Floor area ratio (FAR) is the gross floor area, excluding the area devoted exclusively to parking, divided by the total net area of the development site. • Incentives include density bonuses, FAR bonuses, and other benefits that the City may grant in return for special benefits provided by the development project to the City; density and FAR bonuses may only be given pursuant to the criteria contained in the City’s zoning or other land use regulations. In order to convert density expressed in units per acre to density expressed in persons per acre, multiply by 2.32, the 1998 estimate by the California Department of Finance for the average number of persons per household in El Cerrito. 4-12 Community Development and Design August 30, 1999 ---PAGE BREAK--- EL CERRITO GENERAL PLAN The City has an incentives program in place (Zoning Ordinance Chapter 19.32, adopted 1977, amended 1997). Under the program, development incentives may be granted for a project where the incentives will promote closer adherence to City objectives. Incentives may include increased density reduced parking, greater building height, or other deviations from regular zoning standards. In exchange for such incentives, the City will require desirable features, such as exceptional design, creative design of off-street parking, enhancements to public amenities, environmental benefits such as creek restoration, and similar benefits to the community. The program most frequently has been used for minor density increases in projects ranging from 5 to 20 dwelling unites, never exceeding 40 units per acre. The program has allowed more substantial density increases for projects for the elderly and disabled, up to 76 units per acre. Some of those projects have also been granted increased height, reduced parking, and reduced setbacks. Appendix G is a tabulation of the results of applying the Incentives Program from 1983 through 1997. Table 4-2: Density and Intensity Ranges Density (du/acre) Intensity (FAR) Normal Range With City Incentives With State- Mandated Density Bonuses Normal Range With City Incentives Residential Very Low Density Up to 6 NA Up to 7.5 NA NA Low Density 7-10 NA 7-12.5 NA NA Medium Density 11-20 11-25 11-25 NA NA High Density 21-35 21-45* 21-45 NA NA Mixed-Use Commercial General Up to 35 Up to 45* Up to 45 Up to 2.0 Up to 3.0 Neighborhood Commercial Up to 20 Up to 25 Up to 25 Up to 1.0 NA Parks and Open Space NA NA NA Up to 0.1 Up to 0.5 Institutional and Utilities NA NA NA Up to 1.0 Up to 2.0 *Within the High Density Residential and Mixed-Use Commercial land use categories, up to 70 dwelling units per acre may be allowed through a city density-bonus incentive program for housing for elderly and handicapped persons where there is a commitment to provide services such as congregate care, onsite counseling, or medical services for residents. August 30, 1999 Community Development and Design 4-13 ---PAGE BREAK--- EL CERRITO GENERAL PLAN D. Goals and Policies The Implementation Measures associated with each policy are described at the end of this chapter. Goal LU1: A high-quality residential character within El Cerrito. Policies Implementation Measures LU1.1 Predominate Single-Family Use. Ensure that the existing single-family neighborhoods remain in predominately single-family use, but including accessory units, by prohibiting incompatible uses. • Development Regulations (zoning) • General Plan Consistency Review LU1.2 Multifamily Neighborhoods. Ensure that new development in multifamily neighborhoods supports, rather than detracts from the existing residential character of the area. • Development Regulations (zoning) • Development Review • Design Guidelines • CEQA Review LU1.3 Quality of Development. Ensure that all multifamily or mixed-use development in residential areas addresses compatibility and quality of life issues • Development Regulations (zoning) • Development Review • Design Guidelines (except existing single-family) • CEQA Review • General Plan Consistency Review LU1.4 Intrusions into Residential Areas. Eliminate, to the greatest extent possible, intrusions into residential areas from nonresidential areas, such as noise and commercial traffic and parking. • Development Regulations (zoning) • CEQA Review LU1.5 Suitable Housing. Promote suitably located housing and services for all age groups within the city. • Development Regulations (zoning) • Housing Program • Redevelopment Program 4-14 Community Development and Design August 30, 1999 ---PAGE BREAK--- EL CERRITO GENERAL PLAN LU1.6 Variety of Housing Types. Encourage diverse housing types, such as live-work units, studio spaces, townhouses, co- housing, congregate care, and garden apartments. • Development Regulations (zoning) • Development Review • Redevelopment Program • Design Guidelines • Housing Program • Incentives Program LU1.7 Maximum Density. Maintain the maximum multifamily density at 35 dwelling units per acre, except as otherwise provided in this Plan. • Development Regulations (zoning) LU1.8 Neighborhood Maintenance. Maintain the appearance of existing residential areas by discouraging paving of front yards and parkway strips, excessively wide curb cuts and driveways, and inappropriate fence materials in front yards. • Development Regulations (zoning) Goal LU2: A land use pattern and mix of uses that contribute to the financial health and stability of the community. Policies Implementation Measures LU2.1 San Pablo Avenue. Promote retail, office, and mixed uses along San Pablo Avenue to provide more tax revenues to the city. • Development Regulations (zoning) • Redevelopment Program • Economic Development Strategy • Design Guidelines August 30, 1999 Community Development and Design 4-15 ---PAGE BREAK--- EL CERRITO GENERAL PLAN LU2.2 Commercial Diversification. Maintain a diversity of commercial land uses to ensure stability during economic cycles and enrich the lives of residents. The maintenance of diversity includes encouragement of small businesses, both in terms of creation of new firms and retention of existing ones. • Development Regulations (zoning) • Redevelopment Program • Economic Development Strategy LU2.3 Local Employment Opportunities. Promote economic development that offers local employment opportunities for El Cerrito residents. • Development Regulations (zoning) • Redevelopment Program • Economic Development Strategy LU2.4 Fiscal Impacts. Evaluate the fiscal impact of projects as part of the development review process to assure that new development does not reduce standards or unduly increase the burden on existing residents. • Development Review • Public Facilities Fee • Traffic Impact Fee • Impact Fees • Fiscal Impact Assessment LU2.5 Maximum FARS. Allow a maximum floor-area-ratio of 2.0 in all commercial areas except the neighborhood commercial centers where the maximum is 1.0 and except as otherwise provided in this Plan. • Development Regulations (zoning) 4-16 Community Development and Design August 30, 1999 ---PAGE BREAK--- EL CERRITO GENERAL PLAN Goal LU3: A development pattern that enhances a strong sense of community. Policies Implementation Measures LU3.1 Commercial/Residential Interaction. Encourage easy access to local businesses as focal points for neighborhood social interaction. • Development Regulations (zoning) • Design Guidelines • Development Review LU3.2 Midtown Center. Promote the organization of properties along San Pablo Avenue from south of Moeser Lane to north of Manila Avenue into a “Midtown Center” which may include a civic center. • Development Regulations (zoning) • Specific Plans • Capital Improvements Program • Redevelopment Program • Economic Development Strategy Goal LU4: A safe, attractive, and interesting community Policies Implementation Measures LU4.1 Mixture of Uses. Encourage a mix of uses that promotes such community values as convenience, economic vitality, fiscal stability, public safety, a healthy environment, and a pleasant quality of life. • Development Regulations (zoning) • Redevelopment Program • Economic Development Strategy LU4.2 Availability of Goods and Services. Provide for economic development that assures the availability and diversity of resident-serving goods and services. • Development Regulations (zoning) • Redevelopment Program • Economic Development Strategy August 30, 1999 Community Development and Design 4-17 ---PAGE BREAK--- EL CERRITO GENERAL PLAN LU4.3 Street Frontages. Encourage attractive and accessible street frontages that contribute to the retail vitality of all commercial or mixed-use centers. • Development Regulations (zoning) • Design Guidelines • Development Review LU4.4 Amenities. Ensure that new development provides a high level of amenity for users of the development, and, wherever possible, includes community-serving facilities. • Development Regulations (zoning) • Design Guidelines • Development Review • Redevelopment Program • Development Incentives LU4.5 Quality of Development. Ensure that all development in nonresidential areas addresses compatibility and quality of life issues. • Development Regulations (zoning) • Design Guidelines • Development Review • General Plan Consistency Review LU4.6 Crime Prevention. Encourage the use of planning and design features that promote crime prevention to make the city safer and relieve the burden on law enforcement services. • Development Regulations (zoning) • Design Guidelines • Development Review 4-18 Community Development and Design August 30, 1999 ---PAGE BREAK--- EL CERRITO GENERAL PLAN Goal LU5: A land use pattern and types of development that support alternatives for the movement of people, goods, and ideas. Policies Implementation Measures LU5.1 BART Station Areas. Encourage higher densities and a mix of uses near the city’s two BART stations to take advantage of the transit opportunities they provide. • Development Regulations (zoning) • Specific Plan • Redevelopment Program LU5.2 Mixed-Use Centers. Encourage mixed- use centers along San Pablo Avenue – including development along Fairmount Avenue, Stockton Avenue and Moeser Lane, between San Pablo Avenue and the Ohlone Greenway – that provide the opportunity for people to walk among businesses, employment, and residences. • Development Regulations (zoning) • Specific Plan • Redevelopment Program • Economic Development Strategy LU5.3 Mixed-Use Projects. Encourage mixed uses, especially offices or housing over ground-floor retail uses, where commercial uses are allowed. • Development Regulations (zoning) • Design Guidelines LU5.4 Neighborhood Commercial Centers. Support the maintenance and revitalization of small commercial centers within residential neighborhoods, recognizing that they serve as valuable community amenities. Where feasible, intensification or limited expansion of the three established locations, as displayed on the Land Use Map, may be permitted. • Development Regulations (zoning) • Economic Development Strategy LU5.5 Pedestrians, Bicycles, and Access. Ensure that business areas have adequate pedestrian and bicycle facilities and accessibility for persons with disabilities, and that easy connections to transit are available wherever possible. • Development Regulations (zoning) • Development Review • Capital Improvements Program • Design Guidelines August 30, 1999 Community Development and Design 4-19 ---PAGE BREAK--- EL CERRITO GENERAL PLAN LU5.6 Development Along the Ohlone Greenway. New or substantially altered development abutting the Ohlone Greenway will be evaluated with respect to how the development enhances the aesthetics and ambiance of this important linear recreational and transportation facility, and how the development contributes to the security of users of the Greenway. The City will expect frontage along the Greenway to be treated as if it were public street frontage, with commensurate attention to design quality. • Development Regulations (zoning) • Development Review • Design Guidelines Goal LU6: Development patterns that promote energy efficiency, conservation of natural resources, and use of renewable rather than nonrenewable resources. Policies Implementation Measures LU6.1 Natural Features. Preserve or restore the natural terrain, drainage, and vegetation on and near development sites and open-up buried creeks where opportunities can be found, unless there are compelling reasons why this cannot be done. • Development Regulations (zoning) • Development Review • CEQA Review LU6.2 Circulation Alternatives. To the extent possible, encourage alternatives to the use of private automobiles. Encourage a full range of transportation options – driving, transit, walking and biking – without allowing any one to preclude the others. • Development Regulations (zoning) • Specific Plans • Redevelopment Program LU6.3 Environmental Businesses. Encourage businesses that deal in environmentally sound products and services to set an example for residents and other communities. • Economic Development Strategy • Redevelopment Program 4-20 Community Development and Design August 30, 1999 ---PAGE BREAK--- EL CERRITO GENERAL PLAN LU6.4 Water Conservation. Require water conserving landscape design and fixture types in all new development. This policy is not intended to encourage the substitution of paved surfaces and other hardscape for plant materials. • Development Regulations (zoning) • Development Review August 30, 1999 Community Development and Design 4-21 ---PAGE BREAK--- EL CERRITO GENERAL PLAN COMMUNITY DESIGN Community design is the process of giving physical design direction to urban growth, conservation, and change. It is understood to include directions for site organization and planning, landscape design, as well as building design, including rehabilitation, preservation, and new construction. The physical form and appearance, which are related to land use and transportation, establishes the character and image of the city, and influences the quality of life of residents and visitors. Land use policies establish the overall type and location of activities, while the community design goals and policies establish the “quality” of those places. The process of making an urban design concept politically viable or economically feasible is a “piece-meal” decision-making process that goes on continuously, day after day, site by site. To shape the physical form and direction of the city, decision- makers need both a strong vision of what ought to happen and the opportunities to influence critical decisions. Making physical improvements in the city is a process intimately connected to the social and economic conditions of the community. The design of cities is often unintentional, but it is not accidental. It is the product of decisions made for single, separate purposes, with interrelationships and side effects that have not been fully considered. The design of our cities has been determined by engineers, surveyors, lawyers, and investors, each making individual, rational decisions for rational reasons, but leaving the overall design of the city to take care of itself later, if at all. This section identifies development patterns, community assets, challenges, and opportunities for change and improvement in the City’s physical form and appearance. Taken together, these elements influence El Cerrito’s visual image and character, and create a “sense of place.” The “sense of place,” which can be designed, affects how one perceives and experiences the environment around us. A major goal of the community is to strengthen and protect those special qualities that make El Cerrito a great place to live while enhancing the character of the City through improving the quality of design and amenities. These special qualities include making El Cerrito a pedestrian friendly place with attractive streets, buildings, and public places. A. Setting El Cerrito lies between the dramatic shoreline of the San Francisco Bay and the green backdrop of the East Bay hillsides. The rising topography of the hills forms a strong north-south edge to the City on the east, while the I-80 freeway creates a formidable north-south barrier on the west. 4-22 Community Development and Design August 30, 1999 ---PAGE BREAK--- EL CERRITO GENERAL PLAN To those who know it, El Cerrito is a community of graceful neighborhoods, rich with vistas and open spaces, and a number of distinct landmarks, physical features, and activity areas. To many “outsiders,” however, El Cerrito’s identity is primarily shaped by the views from the I-80 corridor and the suburban auto-oriented commercial strip along San Pablo Avenue. The freeway with its raised structure, berms and sound walls creates a visual, physical, and barrier on the western edge of the City. The tree-lined neighborhoods of Kensington and Albany bound the city on the south. The hillside housing of the City of Richmond and the unincorporated area of East Richmond Heights bound the City on the north. Just west along much of San Pablo Avenue is a section of Richmond called the Richmond Annex. Although within a different city, this residential neighborhood has a strong visual connection with El Cerrito. Development Patterns El Cerrito’s urban development pattern can be divided into a series of distinct north-south bands or “layers” from the Bay lowlands on the west to Wildcat Canyon ridge tops to the east. These layers are differentiated by major physical elements, including the type and pattern of streets, primary activities, land uses and structures, and changing topography. The San Francisco Bay While physically separated from the Bay’s shoreline by industrial and residential areas in Richmond, the San Francisco Bay forms our perception of El Cerrito’s edge and is a strong orientation feature in the region. The I-80 Corridor With extensive sound walls, berms, freeway structures and constant noise and vehicular movement, the freeway provides an inhospitable environment for the pedestrian and limits direct connections to the Bay. The I-80 corridor, with its sound walls and berms, increases the City’s isolation and auto-oriented character. The few connections under the freeway (Central, Potrero, and Cutting) offer limited visual relief and a generally foreboding environment. The San Pablo Avenue Commercial Corridor A wide, auto-oriented suburban boulevard and an irregular pattern of strip commercial development characterize the San Pablo Avenue commercial corridor. The Historical Grid Neighborhoods The residential areas east of San Pablo Avenue and the BART tracks consist of a traditional street grid, relatively small lots and a mix of housing types, ages, and designs. The higher density areas just east of San Pablo Avenue offer a transition from commercial to residential use. Some existing moderate density housing has been designed to integrate into the neighborhood fabric, while other box-like structures create a negative image. Lower density neighborhoods further east have August 30, 1999 Community Development and Design 4-23 ---PAGE BREAK--- EL CERRITO GENERAL PLAN generally quiet streets and a variety of housing designs. Several streets function as a north-south bypass to San Pablo Avenue (such as Richmond Street). BART Tracks The elevated BART tracks, with the Ohlone Greenway below, run north-south through the City of El Cerrito and accentuate the linear development pattern and form of the community. Higher intensity housing and commercial areas generally lie west of the BART tracks along the San Pablo Avenue Corridor. Lower intensity residential neighborhoods lie east of the BART tracks. “Hidden” El Cerrito Perhaps less well known are the residential areas west of San Pablo and Carlson, “hidden” El Cerrito. The Carlson residential area located at the base of Albany Hill shares the traditional grid street pattern and has a mix of housing types. With imposing views of Albany Hill, it is also bounded by an open and accessible part of Cerrito Creek. A second “hidden” area, West El Cerrito, is located just west of I-80, off Potrero. This area is physically separated from the rest of the City by I-80 but shares many of the positive qualities of the other traditional residential areas. The Hillside Residential Distr cts i Further east, as development moves into the hillsides, curvilinear streets follow the hillside contours, the housing is generally larger and newer, informal trees and landscaping mask the houses, and urban sidewalks give way to street edges with curbs and gutters only. The diversity of these hillside areas is striking. Some are heavily landscaped, while other areas offer sweeping vistas of the Bay and beyond. Housing densities, ages, and styles vary. Steep open hillsides separate many of the lower hillside homes from upper areas. In most cases, the Bay view is the most prominent visual feature from the homes and streets. However, the views toward these hillsides from other parts of the City and the freeway are as visually important as the outward views. The Ridgelines The final layer encompasses the East Bay hills and the open spaces and ridgelines of Wildcat Canyon Park. In some places, view homes back onto these open spaces. In other locations, the ridges extend into the open spaces of the Mira Vista golf course. These open spaces and ridgelines form a continuous and dramatic green edge to the City. B. Community Design Elements Community design is the process of organizing and shaping physical form in the landscape. This section outlines the major physical elements in the City of El Cerrito that contribute to making a more attractive place to live. 4-24 Community Development and Design August 30, 1999 ---PAGE BREAK--- EL CERRITO GENERAL PLAN Gateways and Entry Features Because it is bounded by urban development on the north, south, and west, there are few visual clues that one is entering El Cerrito. However, there are opportunities to create a more distinct identity and improve legibility and direction for residents and visitors. The BART stations lack signage, graphics, landscaping, and other symbols of entry. Orientation signage, kiosks, maps, art and distinctive landscaping and pedestrian features could help inform visitors approaching on BART and create a “sense of arrival” to the City. Along the Ohlone Greenway, bicyclists and pedestrians have pleasant views of adjoining parks and open spaces, and are generally served by adequate signage for cross-streets and entry into the City. There are several areas where the views from the road into the greenway, with its variety of landscape features (such as a restored creek corridor), creates an inviting image. These areas merit protection and further enhancement. The Ohlone Greenway lighting program, recently completed, has been very effective, and additional lighting along the Greenway should be completed in the future. Signage may need improvement to make drivers and pedestrians more aware of the greenway. For the driver entering El Cerrito there are few distinctive entries. The character of buildings, signage, landscaping, and land uses are relatively undifferentiated from one developed area to the next. Arriving from the north or south along San Pablo Avenue, there is a continuous uneven commercial strip development pattern with minimal signage and few landmarks. At El Cerrito Plaza, a driver views only a conventional City limits sign obscured by poles and retaining walls. Similarly, residential neighborhoods are undifferentiated with surrounding communities. Many neighborhoods increasingly lack street trees as one moves north from North Berkeley and Kensington into El Cerrito. The freeway interchanges also have no distinctive features that help identify entry. Opportunities for signage, landscaping, lighting, sculpture, and art, can enhance the “sense of arrival” and help create a distinctive and identifiable entrance for the auto users. From the Arlington, an interesting brick gateway remains between Terrace and Arbor. This feature creates a distinctive tone and quality for the area. Other “gateways” of unique design could be used to distinguish and announce neighborhoods and commercial hubs throughout the City. Residential streets with a substantial tree canopy offer visual relief and interest along streets. Even a relatively discontinuous tree pattern can create visual gateways. Other street features can be used to identify commercial and residential areas such as traffic circles Kensington Circle and Marin Circle) or extended sidewalks and planting beds. August 30, 1999 Community Development and Design 4-25 ---PAGE BREAK--- EL CERRITO GENERAL PLAN The San Pablo Avenue Commercial Corridor San Pablo Avenue is a continuous suburban, strip-commercial street. Typical of an older state highway, the strip has a variety of low-scale commercial malls, surface parking, and older one- and two-story commercial and residential buildings in a variety of sizes, characters, ages, and styles. These conditions will require a cooperative effort with the City of Richmond to create an attractive and unified visual character. The streetscape changes throughout its length, with a mix of landscaped median designs and sidewalk character. The west side of San Pablo Avenue from approximately Bay View Avenue on the north to San Jose Avenue on the south is outside the City limits. Sidewalks are in various states of disrepair. There are few benches or other pedestrian amenities, and maintenance is generally lacking. Landmarks, distinctive architecture, crosswalks, and unique commercial and public activity areas are lacking. San Pablo Avenue could benefit from a conscious strategy to create distinct nodes of higher density and activity with public space and pedestrian amenities. With the mixed-use Del Norte Place near one end of San Pablo Avenue and opportunities for El Cerrito Plaza redesign at the other end, El Cerrito’s segment of the avenue has the unique potential for two lively and definable places adjacent to BART. Activity Centers Activity centers are where people gather to meet, recreate, shop, or do business. Centers can be formed at major grocery stores, neighborhood retail hubs, transit stops, and civic or community locations. Successful activity nodes work better when a variety of uses cluster in and around a common location, create day and night activity, and provide a public space for meeting people. The most successful centers have a variety of places to eat, shop, play, and work⎯a place to see and be seen. El Cerrito has several existing centers of activity, but many need improvement to meet their potential. Retail Centers Several neighborhood retail centers are located along San Pablo Avenue. Generally anchored by a grocery store and a drugstore, these retail activity centers can also include banks, restaurants, and neighborhood-serving convenience retail stores. The existing centers are located at approximately half-mile intervals along San Pablo Avenue and provide retail access to the surrounding residential neighborhoods. Although not pedestrian friendly environments from surrounding residential neighborhoods, they do provide for everyday necessities. These centers generally lack the visual character and distinction of more active and vital town centers. They are low-scale, single-use, and auto-oriented retail centers with large parking lots fronting the street, few pedestrian amenities, suburban-style architecture, and no public gathering space. 4-26 Community Development and Design August 30, 1999 ---PAGE BREAK--- EL CERRITO GENERAL PLAN Just west of the City limits in the City of Richmond, the new Ranch 99 Market has created a regional serving, specialty retail center. Just north of the city limits, on San Pablo Avenue in the City of Richmond, is another major retail center. This center provides local shopping and retail stores to El Cerrito residents living in the northern portion of the City. El Cerrito’s centers could be enhanced with the addition of a small plazas and public meeting places, cafés and coffee shops, and the addition of pedestrian amenities, improved building facades, landscaping, and safe connections to surrounding residential areas. Del Norte Area The northern area, Del Norte, is more regional serving in character, providing a “big box” shopping destination around and north of the corner of Cutting and San Pablo Avenue. The Del Norte area is an area in transition. Some of the older retail stores are now vacant. Due to the direct freeway access, new “big box” retail uses are replacing older strip commercial uses along this portion of San Pablo Avenue. The proximity to the Del Norte BART station, however, provides a unique opportunity for higher intensity, transit-oriented development. El Cerrito Plaza Some uses and stores in the El Cerrito Plaza are currently being remodeled. The current visual and design problems are evident: a sea of surface parking; blank building facades far from the street and sidewalk, no landscaping or pedestrian amenities, inhospitable buildings, single use with limited marketability, poor entries and signage, and an unattractive retaining wall. The importance of this site lies not only in its location at the door to El Cerrito, the commercial district, and BART, but also in its proximity to Cerrito Creek and its future development potential. BART Transit Centers The Ohlone Greenway provides a unique foreground to the BART stations. However, other design elements are lacking around the BART stations. The stations could be enhanced with new signage, landscaped parking, safe pedestrian ways to surrounding neighborhoods, and distinctive landmarks. BART patrons should be able to see inviting architecture and land uses as they exit BART. Neighborhood Convenience Centers El Cerrito has two interesting and attractive neighborhood serving, retail centers including the Fairmount Center at Colusa and the neighborhood retail cluster on Stockton. Another small neighborhood center at the Colusa Circle lies just south of the City limits. These areas offer attractive retail nodes to the east of San Pablo Avenue. August 30, 1999 Community Development and Design 4-27 ---PAGE BREAK--- EL CERRITO GENERAL PLAN Midtown City Center Some portions of San Pablo Avenue offer opportunities to create additional centers both large and small. The civic uses at San Pablo Avenue and Manila provide an opportunity to create a major Midtown City Center. Presently this is a single-use destination. Adding mixed-use retail activity, residential and office uses, and a public place for meeting and gatherings would enhance the site considerably. Parks, Open Spaces, and Environmental Resources Parks, open spaces, and environmental habitat areas are valuable resources for the community, both for active recreational use and passive visual enjoyment. The open space areas include existing schools and park spaces, as well as a portion of the steep El Cerrito hillsides. The existing Mira Vista Golf and Country Club and the Sunset View Cemetery add valuable open space to the city character and form. Several of the major hillside features add to the quality of these open spaces, including the Albany Hill just south of the city, the Canyon Trail Park, Poinsett Park, and Tassajara Park. Creeks and drainages could make up a more significant part of the City’s visual and recreational environment. The few locations where creeks are open provide opportunities for viewing points, critical habitats, and walkways. Portions of Cerrito Creek may have potential to be “daylighted” and used for recreational purposes. Views and Vistas Views from the upper hillside areas of El Cerrito are spectacular, offering grand vistas of bridges, the San Francisco and San Pablo bays, Mt. Tamalpais and Marin County, the Golden Gate and, on a clear day, the Pacific Ocean beyond. The hillsides offer dramatic night views of San Francisco and other Bay cities. While many of the dramatic views are from private residences, the hillside streets, such as Moeser, Potrero, Cutting, and Barrett, provide public views along the streets. Views from Moeser Lane are most impressive. The wide-open street, the steep elevation changes, and the low landscaping help create the wide-open vistas. Overhead power lines, however, detract from the view throughout the length of the street. Many significant views in El Cerrito are those looking back at the East Bay hills from the city below. Views to Albany Hill also add to the unique quality of the community, particularly in the southeast portions of the city, such as along Fairmount and Rockway Streets. Special Features, Landmarks and Sacred Places Landmarks and “sacred places” also shape our image of the city. Landmarks are typically special buildings, towers, spires, or natural features such as trees, rock outcroppings and hillsides. Landmarks help us to locate ourselves in space, mark special destinations, differentiate one location from another, and create a distinct image. 4-28 Community Development and Design August 30, 1999 ---PAGE BREAK--- EL CERRITO GENERAL PLAN El Cerrito has several distinguishing landmarks. Some of the most dramatic are natural features, such as a large rock outcropping at the top of Cutting Boulevard. Other landmarks are the churches and schools in the residential areas, such as the distinctive Chinese architecture of Windrush School on Cutting and Elm Street, and the Sunset View Cemetery Chapel at the end of Fairmount Avenue. Sacred places are significant activity places in a community⎯places were people meet for either formal or informal events. Sacred places are created by tradition and use and not necessarily by distinctive architecture. Sacred places help to create a “sense of community” and history. Sacred places provide memorable experiences of our communities that give meaning and significance to our everyday lives. El Cerrito has a number of interesting sacred places. Some are natural, such as Cerrito Creek, and others are created through traditional use, such as the Pastime Hardware Store on San Pablo Avenue, schools, City Hall, the library and the Community Center. Many informal, local meeting and eating places are also considered sacred places, such as Fat Apples restaurant on Fairmount Avenue. Opportunities exist for creating new landmarks in the community, while enhancing and protecting existing landmarks and sacred places. Landmarks can be encouraged at the major activity centers in the community and along San Pablo Avenue. Landmarks can also be used to help identify the major commercial centers and the BART stations. New civic buildings, such as a new city hall can provide opportunities to create significant landmarks through dramatic architectural design, use of clock or bell towers, and a central public plaza. C. Trends This section outlines a number of design trends as major organizational concepts and design principles for shaping the future of El Cerrito. These concepts build on the existing land use and development patterns in the City of El Cerrito, listed above, and help set the policy direction for future design and development improvements, both in the private and public sector. A City of Homes El Cerrito will continue to be a “City of Homes.” The predominant land use pattern in the city consists of single-family residences extending into the East Bay Hills. Residents of the upper hillside homes have commanding views of the scenic San Francisco Bay. Smaller, well-kept homes form quiet residential neighborhoods in the areas closer to San Pablo Avenue. Residential densities increase in scale and intensity as one approaches San Pablo Avenue and the BART tracks. Housing types and design reflect the character, scale, and height of adjoining single-family residents. August 30, 1999 Community Development and Design 4-29 ---PAGE BREAK--- EL CERRITO GENERAL PLAN This major land use and organizational pattern will not change in the foreseeable future. Thus a major goal of the plan is to protect and preserve the character of these residential neighborhoods. Improvements to the residential areas include undergrounding utilities over time, planting street trees, and improving sidewalks, streets and recreational amenities. Three Major Activity Centers The San Pablo Avenue corridor provides virtually all the development opportunities for new office work places and shopping. Recent development trends reflect that retail development forms are shifting from suburban strip commercial and community malls to more pedestrian friendly, transit oriented villages. El Cerrito’s unique location provides an opportunity to take advantage of these changing marketing trends. El Cerrito has the potential to create three major centers⎯the El Cerrito Plaza Area, the Del Norte Area, and a Midtown Area. These three major activity centers are envisioned as pedestrian friendly, mixed-use villages, with ground floor retail uses and upper floors of office and residential uses. Both El Cerrito Plaza and Del Norte Center take advantage of their regional location next to the BART stations. These three major centers are connected along San Pablo Avenue, BART and the Ohlone Greenway with additional office, retail, and housing uses in between. Each center has its own unique character and function. The Plaza provides an opportunity for larger, high-end retail users providing goods and services both locally and more regionally. Del Norte provides an opportunity for a new regional work place with new office space for smaller, entrepreneurial enterprises, live-work studios, R&D office space, and for traditional insurance and banking services. The Midtown Center provides an opportunity to cluster development around new civic functions. Neighborhood Retail Centers Another design concept is to continue to provide local neighborhood retail opportunities in smaller neighborhood retail centers away from San Pablo Avenue. These small, unique shopping areas are clustered at the end of Fairmount Avenue and on Stockton Street. A Pedestrian Friendly Place Future improvements in the City of El Cerrito are linked by a system of pedestrian friendly streets, pathways, and open spaces. The pedestrian friendly concept is to create an environment that places an emphasis on the pedestrian, bicyclist, and public transit systems, slowing auto traffic and providing an attractive setting. Pedestrian friendly places are intended to improve the “quality of life” for residents by making safer, more attractive, and walkable places throughout the city. 4-30 Community Development and Design August 30, 1999 ---PAGE BREAK--- EL CERRITO GENERAL PLAN D. Goals and Policies The Implementation Measures associated with each policy are described at the end of this chapter. Goal CD1: A city organized and designed with an overall attractive, positive image and “sense of place.” Policies Implementation Measures CD1.1 Neighborhood Character. Preserve and enhance the character of existing residential neighborhoods by limiting encroachment of new buildings and activities that are out of scale and character with the surrounding uses. • Development Review • Design Guidelines • Street Tree Program • Development Regulations (zoning) CD1.2 Design Concept. Plan and construct development within development activity centers and neighborhood commercial centers according to an overall design concept for each center. • Specific Plans • Design Guidelines • Grant Funds CD1.3 High-Quality Design. Encourage higher- quality design through the use of well- crafted and maintained buildings and landscaping, use of higher-quality building materials, and attention to the design and execution of building details and amenities in both public and private projects. • Development Review • Design Guidelines • Development Incentives • Development Regulations (zoning) CD1.4 Utility Lines. Encourage the undergrounding of utility lines where possible. • Underground Utility Districts CD1.5 Landmarks Preservation. Inventory and designate potential sites and structures of architectural, historic, archaeological, and cultural significance. • Historical Inventory and Designation CD1.6 Entrances to the City. Improve the major entrances into the city with landmark entry features, signs, and gateways to enhance the sense of community and improve the City’s image. • City Entry Design Program August 30, 1999 Community Development and Design 4-31 ---PAGE BREAK--- EL CERRITO GENERAL PLAN CD1.7 Views and Vistas. Preserve and enhance major views and vistas along major streets and open spaces, providing areas to stroll and benches to rest and enjoy views. • Development Regulations (zoning) • Beautification Program CD1.8 Edges. Preserve and enhance El Cerrito’s well-defined edges along the hillside open spaces, the eastern border along the regional park, and the I-80 freeway. • Intergovernmental Coordination • Development Review CD1.9 Building Design. A variety of attractive images will be achieved by encouraging a variety of building styles and designs, within a unifying context of consistent “pedestrian” scale along streets and compatibility among neighboring land uses. • Design Guidelines • Development Review • Specific Plans Goal CD2: A city with attractive, safe, and functional streets, parking areas, and pedestrian walkways. Policies Implementation Measures CD2.1 Street Frontages. Encourage street frontages that are safe, by allowing for surveillance of the street by people inside buildings and elsewhere, and are interesting for pedestrians. Require buildings in development centers and neighborhood commercial centers along San Pablo Avenue to be directly abutting sidewalks, with window openings and entries along the pedestrian frontage. • Specific Plans • Design Guidelines • Development Review • Development Regulations (zoning) • Grant Funds 4-32 Community Development and Design August 30, 1999 ---PAGE BREAK--- EL CERRITO GENERAL PLAN CD2.2 San Pablo Avenue. Develop a design concept for San Pablo Avenue that includes street landscaping and improvements, and design guidelines that create an overall coordinated image and character of the street from north to south. Establish physical design standards for development in cooperation with Caltrans and, where required, subject to acceptance by Caltrans. • Design Guidelines • Parking Districts • Specific Plans CD2.3 Streetscape Improvements. Maintain an active program of street tree planting and improved roadway landscaping through both public and private means. Design guidelines shall describe appropriate types of trees for commercial areas – to enhance the shopping experience rather than detract from it. • Street Tree Program • Design Guidelines • Development Regulations (zoning) • Capital Improvements Program • Beautification Program CD2.4 Multi-Modal Transportation Network. Ensure that streets, paths, and bikeways contribute to the system of a fully connected transportation network to all major destinations in the City. The design of these streets and pathways should encourage pedestrian and bicycle uses by being spatially defined by buildings, trees, lighting, and street furniture. Pedestrian and bicycle pathways and auto routes should be compatible. • Design Guidelines • Street Tree Program • Beautification Program CD2.5 Signs. Scale and orient signs to both pedestrians and drivers along the street frontage. Building signs should be designed to fit within the scale and character of buildings. • Design Guidelines • Sign Ordinance • Development Review August 30, 1999 Community Development and Design 4-33 ---PAGE BREAK--- EL CERRITO GENERAL PLAN CD2.6 Parking Layout. Encourage the development of common parking areas and common access for adjoining lots. • Design Guidelines • Parking Districts • Specific Plans • Development Regulations (zoning) CD2.7 Accessible Design. Site and building design must meet basic accessibility needs of the community and not be exclusively oriented to those who arrive by car. • Design Guidelines • Development Review • Specific Plans CD2.8 City Sidewalk and Pedestrian Walkways. City streets and pedestrian walkways should be designed to be safe, accessible, convenient, comfortable, and functionally adequate at all times, including the design of pedestrian crossings, intersection design, sidewalk widths, street tree planting, street furniture, and signal timing. • Streetscape Improvement Program • Street Tree Program • Beautification Program • Specific Plans • Design Guidelines Goal CD3: A city with attractive landscaping of public and private properties, open space, and public gathering spaces. Policies Implementation Measures CD3.1 Tree Preservation. Preserve existing significant trees and tree groupings where possible. Replace trees removed due to site development. • Development Regulations (zoning) • Development Review CD3.2 Usable Open Spaces. Require the provision of usable open space in the form of ground-floor patios, upper- floor decks, and balconies, as well as common recreational facilities. • Development Regulations • Design Guidelines • Development Review 4-34 Community Development and Design August 30, 1999 ---PAGE BREAK--- EL CERRITO GENERAL PLAN CD3.3 Site Landscaping. Improve the appearance of the community by requiring aesthetically designed screening and landscaping on public and private sites. Ensure that public landscaping includes entry areas, street medians, parks, and schools. Require landscaping for all private sites, yard spaces, parking lots, plazas, courtyards, and recreational areas. • Development Regulations (zoning) • Design Guidelines • Development Review • Capital Improvements Program CD3.4 Fencing. Require that residential streets maintain open front yards and not be enclosed with fences that exceed three feet in height. Allow fences up to six feet in height to enclose front yards along major arterials, heavily used pedestrian ways or to protect yards from deer and other animals. • Development Regulations (zoning) • Design Guidelines • Development Review CD3.5 Creek Preservation. Where possible, preserve and restore natural drainage ways as parts of the storm drainage system, coordinating with recreational and trail use. • Specific Plans • Development Regulations (zoning) • Design Guidelines • Grant Funds • Joint Watershed Goals CD3.6 Cerrito Creek. Where possible, open the Cerrito Creek channel, providing access and recreational opportunities along the creek in conjunction with its flood control function. • Specific Plans • Grant Funds • Capital Improvements Program • Joint Watershed Goals CD3.7 Landscape Maintenance. Require ongoing maintenance of landscaping on private property (except single- family residences). • Beautification Program • Development Regulations (zoning) August 30, 1999 Community Development and Design 4-35 ---PAGE BREAK--- EL CERRITO GENERAL PLAN CD3.8 Public Spaces. Create specialized outdoor gathering places in the three main activity centers along San Pablo Avenue – Del Norte, Midtown, and El Cerrito Plaza. Encourage the design of these public spaces to accommodate activities that encourage the presence of people at all hours of the day and evenings. • Specific Plans • Design Guidelines • Development Review • Development Incentives • Redevelopment Program CD3.9 Ohlone Greenway. Enhance the usability and aesthetic appeal of the Ohlone Greenway by integrating it into the fabric of the City. Design buildings with entries, yards, patios, and windows to open onto and face the Ohlone Greenway. Avoid blank walls, backs of buildings, and large parking lots adjacent to the greenway. • Design Guidelines • Development Review CD3.10 Greenway Spur Trails. Develop greenway spur trails for creekside access and access to the Bay for recreational use and environmental protection. • Capital Improvements Program • Joint Watershed Goals • Grant Funds CD3.11 Streetscape Design. Streetscape design (street trees, lighting, and pedestrian furniture) should be used to lend character and continuity with commercial districts and residential neighborhoods. • Streetscape Improvement Program • Specific plans • City Entry Design Program • Sign Ordinance CD3.12 Landscape Species. Indigenous and drought-tolerant species that reduce water usage and are compatible with El Cerrito’s climate are encouraged. • Design Guidelines • Development Review 4-36 Community Development and Design August 30, 1999 ---PAGE BREAK--- EL CERRITO GENERAL PLAN Goal CD4: Well designed buildings that are compatible with their surroundings. Policies Implementation Measures CD4.1 Compatibility in Building Scale. Avoid big differences in building scale and character between developments on adjoining lots. • Design Guidelines • Development Review CD4.2 Building Articulation. Ensure that buildings are well articulated. Avoid large unarticulated shapes in building design. Ensure that building designs include varied building facades, rooflines, and building heights to create more interesting and differentiated building forms and shapes. Encourage human scale detail in architectural design. Do not allow unarticulated blank walls or unbroken series of garage doors on the facades of buildings facing the street or the Ohlone Greenway. • Design Guidelines • Development Review CD4.3 Front Yards. Provide front yards in residential areas with structures and parking lots stepped back along public streets in keeping with the character and setbacks of surrounding buildings. Ensure that yard spaces are landscaped appropriately to fit the surrounding context. • Development Regulations (zoning) • Design Guidelines • Development Review CD4.4 Natural Lighting and Ventilation. Ensure that building design takes into consideration air circulation, natural lighting, views, and shading areas to interior and exterior spaces. • Design Guidelines • Development Review CD4.5 Energy and Resources. Integrate good design with the use of energy efficient techniques and equipment, and with materials and construction practices that minimize adverse environmental affects. • Building Code • Development Incentives • Development Regulations (zoning) August 30, 1999 Community Development and Design 4-37 ---PAGE BREAK--- EL CERRITO GENERAL PLAN CD4.6 Sustainable Building Materials. Encourage the use of “green” and non-toxic building materials, and advise builders to apply for regional, state and national incentives programs. • Development Incentives • Grant Funds • Design Guidelines Goal CD5: A design process that achieves design objectives while being efficient and allowing for flexibility. Policies Implementation Measures CD5.1 Design Review Process. Continue design review and approval process for all new development, changes, additions, and modifications of existing buildings (except for single- family homes on existing lots). • Design Guidelines • Development Review CD5.2 Planned Development. Encourage planned development projects and other techniques that cluster developments to create and preserve open spaces, views, and other amenities. • Development Regulations (zoning) • Development Review • Design Guidelines CD5.3 Design Guidelines and Regulations. Make development and design regulations more understandable with use of illustrations, photos, drawings, diagrams, or other graphic and visually oriented regulations, such as a “form code.” • Design Guidelines • Development Regulations (zoning) 4-38 Community Development and Design August 30, 1999 ---PAGE BREAK--- EL CERRITO GENERAL PLAN Goal CD6: An urban form that sustains a vital commercial community to meet the diverse needs of the local and regional population. Policies Implementation Measures CD6 Affordable Commerce. El Cerrito’s urban form should allow site opportunities for commerce by local entrepreneurs – small business spaces in close proximity to other businesses with easy visibility from the street and close to abundant pedestrian traffic. • Development Regulations (zoning) • Design Guidelines • Specific Plans August 30, 1999 Community Development and Design 4-39 ---PAGE BREAK--- EL CERRITO GENERAL PLAN HOUSING The Housing Element is one of the seven required General Plan elements and is an integral part of the El Cerrito General Plan. Because the majority of El Cerrito’s land use is in housing, the Housing Element is a key component of the City’s future plans. The Housing Element is subject to more state guidance and review than the other required elements. State law requires it to be revised every five years, based on the periodic regional housing needs determination made by the Association of Bay Area Governments (ABAG). Because of budgetary constraints; no new needs determination has been published since 1989; therefore, the Housing Element is not being updated as part of the 1999 General Plan Update Program. The Housing Element was last updated in 1991 and adopted by amendment as part of the El Cerrito General Plan. Among other things, the element takes into consideration the city’s housing needs as determined by ABAG and the potential for meeting those needs based on land use designations and an inventory of vacant and under-utilized properties. The regional allocation of 1989 was 722 units. Of those required, 339 units had been produced by the end of 1998. At the time the Housing Element was adopted in 1991, it was determined that, although the supply of vacant residentially zoned land in El Cerrito is limited, there remained adequate capacity to meet the city’s share of projected regional housing needs. Of the total projected 1,183 additional units that could be built: • 165 (44 multifamily and 121 single family) could be accommodated through infill development on vacant land in the city limits; and • 1,018 (all multifamily) could be accommodated through development in the city’s redevelopment project areas (principally around the city’s two BART stations). El Cerrito is expected to adopt a new Housing Element in 2001. In the meantime, the existing adopted Housing Element is included as Appendix A to this General Plan. 4-40 Community Development and Design August 30, 1999 ---PAGE BREAK--- EL CERRITO GENERAL PLAN GROWTH MANAGEMENT A. Setting The Growth Management Element establishes a comprehensive, long-range program that matches demand for public facilities generated by new development with policies and standards for traffic level of service (LOS) and performance criteria for fire, police, parks, sanitary facilities, water supplies, and flood control. The Growth Management Element is concerned with maintaining defined urban service levels; it is not intended to limit growth or to direct growth into certain areas of the community on a priority basis. Most importantly, the Element’s policies ensure that new development impacts that threaten to degrade established traffic performance or public service thresholds are mitigated through project modification, capital improvement programming, or contributions to improvements. The Growth Management Element is part of the General Plan because Contra Costa County voters approved a one-half percent sales tax increase in November 1988, commonly known as "Measure that includes both Transportation Improvement and Growth Management Programs. The overall goals of the Measure C program are: • To relieve congestion created by past development through road and transit improvements funded by the proceeds of the sales tax increase. • To prevent future development decisions resulting in deterioration of public services and acceptable traffic performance levels. The Growth Management Element concerns itself primarily with the latter goal of the countywide growth management program. To be eligible for its share of revenue generated under Measure C, the City must commit itself, as matter of public policy, to carrying out the following objectives: • Manage congestion by adopting and applying traffic service standards for streets, roads and Regional Routes. • Adopt standards for fire, police, parks, water, flood control, and sanitary sewer services which will be met as the city grows, accomplished by 'Performance Standards' for provision of necessary facilities. • Reduce dependency on single-occupant automobile travel through adoption of a local and countywide Transportation Systems Management (TSM) program applied to large-scale employers in the city. • Anticipate needed investments by adopting a five-year Capital Improvement Program that lists projects, their costs and funding mechanisms. • Ensure that new development "pays its own way" through mitigation and fee programs. • Reduce the number and/or length of automobile commute trips by enhancing El Cerrito's housing and job opportunities. August 30, 1999 Community Development and Design 4-41 ---PAGE BREAK--- EL CERRITO GENERAL PLAN B. Traffic Service Standards Projected increases in travel have the capacity to influence disproportionately the shape and character of El Cerrito, if traffic congestion and improvements to the travel network are not managed through local and cooperative regional policy implementation. The Land Use Element (Community Development and Design chapter) establishes the timing and density of future growth within the city. The Transportation Element (Transportation and Circulation chapter), supplemented by the Growth Management Element's defined levels of intersection performance and policies for mitigation of traffic impacts, are useful sources of options and strategies to influence regional growth patterns that extend their influence beyond El Cerrito's borders. Routes of Regional Significance Measure requires that all freeways and selected arterials in the county be designated as Routes of Regional Significance, or "regional routes." These roadways experience extreme levels of congestion, and carry significant levels of through- traffic to other parts of the Bay Area. There are many obstacles to improving conditions on these regional routes, including the high cost of expanding physical capacity and the uncertain role of outside agencies' funding decisions. Within El Cerrito, these regional routes include Interstate Freeway 80, San Pablo Avenue, and Cutting Boulevard. Characteristics of El Cerrito's Regional Routes Interstate Freeway 80 The freeway consists of three lanes in each direction through West County, with a 55 MPH speed limit. Interchanges serving El Cerrito include Central Avenue, Carlson Boulevard, Potrero Avenue, and Cutting Boulevard. Interstate 80 is the most congested of all regional routes. Congestion extends from Pinole Valley Road south to Central Avenue during the AM peak period and from Central to the Carquinez Bridge tollbooth during the PM peak period. Congestion on 1-80 causes high traffic volumes and consequent delays on San Pablo Avenue, the primary parallel route. I-80 has one of the highest percentages of through traffic in the west county corridor, with 52% of AM peak hour direction travel, measured at the Carquinez Bridge. Ninety-two percent of that traffic originates in Napa and Solano counties. Truck traffic, which contributes to travel delay, makes up 9% of total AM Eastbound (non-peak direction) volume, much of which enters or leaves the freeway on the San Pablo Avenue corridor. The West Contra Costa County Action Plan identifies a number of improvements to the I-80 corridor needed by the year 2000 to alleviate the expected breakdown of capacity. Those improvements of most significance to El Cerrito include: • HOV interchange at Cutting Boulevard to serve the El Cerrito Del Norte BART station (constructed) 4-42 Community Development and Design August 30, 1999 ---PAGE BREAK--- EL CERRITO GENERAL PLAN • Parallel route improvements on San Pablo Avenue including signal upgrades (Phase I is under construction. Phase II will implement transit preferential signal timings and include physical enhancements to transit operations on San Pablo Avenue.) • Transportation Management Plan to include transit, ride sharing, public information/marketing and vehicle monitoring. San Pablo Avenue In El Cerrito, San Pablo Avenue is an urbanized thoroughfare between the south City limit at Cerrito Creek Carlson to the north city limit just south of McDonald Avenue with two lanes in each direction. At most intersections there are left turns operating with left-turn signal phasing. The speed limit is 35 MPH. Average daily traffic volumes on San Pablo Avenue are greatest at its southerly extreme in the County. Near Cutting Boulevard, the highest average daily volume is 29,900 vehicles. During the AM peak period, the highest volumes occur near Potrero Avenue at 2,275 vehicles per hour. The highest PM peak hour period volumes occur near Barrett Avenue in Richmond, and frequently cause traffic backup into El Cerrito. The San Pablo Avenue Corridor has been studied on a regional and local basis to determine the improvements necessary to maintain the routes as a parallel to I-80 and to serve locally approved uses. Coordination of improvements is difficult given the number of jurisdictions through which the street passes, and variety of volumes and functions that it serves. Alameda and Contra Costa counties are currently installing signal interconnect along San Pablo Avenue to improve inter-jurisdictional and intra-jurisdictional signal coordination. Cutting Boulevard The portion of Cutting Boulevard in El Cerrito designated as a regional route extends from Key Boulevard to the westerly city limit. It links San Pablo Avenue and the Del Norte BART station to I-80. The road encompasses two lanes in each direction with improved medians and left-turn pockets, except for a segment which is one-way westbound between the BART station and San Pablo Avenue. Most significant congestion occurs east of Carlson Boulevard. Measured delays at San Pablo Avenue have been relatively minor during the PM peak hour, and no improvements within El Cerrito are specified. Regional Action Plans Local jurisdictions are expected to participate in the development of programs to control regional traffic impacts on these routes through a series of Action Plans approved by one of the Regional Transportation Planning Committees created under Measure C. El Cerrito has been working closely with the WCCTAC (West Contra Costa County Traffic Advisory Committee) to develop an action plan for the west county area. Once approved, the Action Plan will be combined by CCTA with other regionally recommended Action Plans to create a countywide comprehensive transportation plan. The City recognizes that the success of attaining Action Plan August 30, 1999 Community Development and Design 4-43 ---PAGE BREAK--- EL CERRITO GENERAL PLAN objectives depends upon participation of other jurisdictions in both planning and funding of necessary improvements. Basic Routes All roads not indicated on the map of Routes of Regional Significance are Basic Routes. The Growth Management Element is required to assess the operating capacity of signalized intersections on Basic Routes, estimate future service impacts resulting from significant, foreseeable increases in home building and job-formation, according to the city's General Plan land use and housing policies. Level of Service – General Measure C requires adoption of traffic level of service (LOS) standards for basic routes, which are related to existing and projected land use. These standards are then applied throughout the remaining General Plan elements to ensure consistency in development decision-making. The Growth Management Element uses traffic LOS as an indicator of present levels of congestion at signalized intersections and as a measuring device to determine the success of congestion relief strategies. Measure C has standardized the criteria for intersection performance related to land use, based on the categories described in Table 4-3. 4-44 Community Development and Design August 30, 1999 ---PAGE BREAK--- EL CERRITO GENERAL PLAN Table 4-3: Infrastructure Performance Related to Land Use Land Use Type LOS Standard Volume/Capacity (V/C) Ratio Rural LOS C (Congestion) 0.70 to 0.74 Semi-Rural LOS C (Congestion) 0.74 to 0.79 Suburban LOS D (High congestion) 0.80 to 0.84 Urban LOS D (High Congestion) 0.85 to 0.89 Central Business District LOS E (Near Capacity) 0.90 to 0.94 Characteristics of Land Use Types Rural Use: Agricultural or Open Space designation in General Plan Land Area: Characterized by large parcel sizes (10 to several thousand acres) Population: One person/acre or 500 persons/sq. mi. Semi-Rural Use: Agriculture on small to medium sized lots or low- density ranchettes; very low density housing Land Area: Parcel sizes not less than 2 to 3 acres Population: 1 to 1.5 persons/acre or 500-1,000 persons/sq. mi. Suburban Use: Low and medium density single family-and multi- family housing; community oriented commercial/industrial uses; 1 to 3 story building heights Land Area 6,000 sq. ft. to 3 acres Population: 1.5 to 12 persons/acre or 1,000-7,000 persons/sq. mi. Urban Use: Medium and high density multi-family housing or single-family condominiums; low to moderate density commercial/industrial uses; 3 to 4 story building heights Land Area: Not specified Population: 12 persons/acre or 7,500 persons/sq. mi. minimum Employment: 15 jobs/acre minimum Central Business District (CBD) Use: High intensity commercial and residential nodes, characterized by large concentrations of jobs and clusters of buildings of 4 or more stories. Includes major commercial centers. Land Area Not specified Population Not specified August 30, 1999 Community Development and Design 4-45 ---PAGE BREAK--- EL CERRITO GENERAL PLAN El Cerrito has connected these terms to the local street hierarchy in the Transportation Element, which classifies vehicle routes according to the character of surrounding development and their linkage to sources of traffic congestion from other jurisdictions. Table 4-4 describes the city's Basic Route signal controlled intersections and the minimum service level at which the intersection is expected to operate based on future development activity: Table 4-4: Signalized Intersection Service Standards Location Land Use Intersection Characteristics LOS Standard Fairmount/Liberty CBD Minor Arterial/Principal Arterial to 0.94 v/c Fairmount/Ashbury Suburban Collector/Minor Art'l/Principal Art'l to 0.84 v/c Fairmount/Colusa Suburban Collector/Principal Arterial to 0.84 v/c Central/Carlson CBD Principal Arterial/Principal Arterial to 0.94 v/c Potrero/Eastshore Urban Local Street/Principal Arterial to 0.89 v/c Richmond/Stockton Suburban Minor Arterial/Collector to 0.84 v/c Richmond/Moeser Urban Minor Arterial/Minor Arterial to 0.89 v/c Richmond/Potrero Urban Minor Arterial/Minor Arterial to 0.89 v/c Cutting/Key Blvd. Urban Principal Arterial/Minor Arterial to 0.89 v/c Infrastructure Conditions As a result of deferred maintenance, local streets have deteriorated to the point where reconstruction now is necessary in some cases. The existing traffic signals on Richmond Avenue have the oldest controllers in Contra Costa County, and parts no longer are available to repair them. Additionally, the Public Safety Commission has identified three problem intersections that may require the installation of new signals at a future date (Richmond and Fairmount, Richmond and Schmidt, and Key and Cutting). A program to reconstruct streets in the city's network will emphasize arterial and collector streets. The streets to be reconstructed first would be the lower portion of Barrett Avenue and Potrero Avenue between Arlington and Navellier. Reconstruction will include removal and replacement of deteriorated curbs, storm drain inlets and catch basins, new pavement, and installation of access ramps where feasible. Level of Service and Future Land Use Nearly all significant new increments of housing and employment will occur on parcels located within the San Pablo Avenue corridor, or in joint use with BART station facilities. Expanding jobs and housing opportunity inside El Cerrito's borders will not necessarily eliminate commute travel to and from the region. However, it will offer an alternative to the commuter lifestyle and enhance options for El Cerrito's economic development that do not burden the regional roadway network. While most of the direct traffic impact of local land use intensification will fall upon Regional Routes such as San Pablo Avenue and Cutting Boulevard, it is equally 4-46 Community Development and Design August 30, 1999 ---PAGE BREAK--- EL CERRITO GENERAL PLAN important that such activity not burden the basic route system and degrade the minimum service levels for signalized intersections described above. The city is committed, as part of the region-wide effort to reduce traffic congestion and improve the efficiency and safety of its local street system, to monitor traffic conditions on a systematic basis and develop programs to maintain established service standards. El Cerrito is a "mature" city with only limited growth potential. However, even the relatively small increment of growth potential described in this Element can burden local and regional transportation facilities without a prescribed means of measurement and defined mitigation programs. C. Urban Service Performance Standards Park and Recreation Facilities Service Function The City of El Cerrito provides a rich diversity of parks and recreational opportunities. Parklands include approximately 32 acres of City-owned parks, 100 acres of City-owned open space used for recreation and conservation purposes, 23 acres of other City-maintained recreation facilities, and 27 acres of School District- owned and maintained recreation areas. More details are provided in Chapter 6. Service Standard Five acres of publicly owned parkland for each 1,000 residents. Fire Suppression and Related Emergency Services Service Function The El Cerrito Fire Department provides first response to structural, vehicular and wildland fires, medical emergencies, hazardous materials, incidents and natural disasters. The Department’s ability to meet to these needs is facilitated through active participation with Richmond, Kensington, and the West County fire departments in an automatic response agreement that uses the combined resources of all four agencies to serve these needs irrespective of jurisdictional lines. The departments share the costs of dispatch and training services and have established common standards for staffing, apparatus and equipment. Service Standard The interagency agreement specifies the following response protocol for all emergency service requests: • Maximum response time for first engine arrival of six minutes including one minute dispatch time and three minute-travel time from responding station. • Three person engine company is minimum response. • Minimum training level of responders shall be Firefighter 1 and Emergency Medical Technician 1. August 30, 1999 Community Development and Design 4-47 ---PAGE BREAK--- EL CERRITO GENERAL PLAN Police Emergency Services Service Function The El Cerrito Police Department’s mission is to respond to requests for law enforcement emergency services, deter criminal activity, investigate crimes against persons and property and undertake proactive programs to reduce the opportunity for criminal activity. The department also acts proactively to reduce dangerous motor vehicle operating practices and offers community education outreach programs about personal and neighborhood security. Service Standard The Police Department is committed to maintaining a level of personnel and capital equipment for first-unit response in three minutes to requests for emergency service. The City's resources alone are insufficient to meet the multiplicity of demands upon a modem police agency. Hence, the Department contracts with the City of Richmond for emergency dispatching, and with various state and county agencies for specialized investigative support services. Sanitary Sewer and Treatment Services Service Function Two agencies work together to serve El Cerrito’s sanitary sewer needs. Stege Sanitary District provides the underground lines leading from customer discharge sites to the regional treatment plant. That plant, operated by the East Bay Municipal Utility District at Point Isabel, provides tertiary level treatment to standards for discharge to the Bay. Service Standard Service capacity planning is based on a 130-gallon daily increment per person. Domestic Water Services Service Function East Bay Municipal Utility District provides domestic water service to residential and institutional customers in the city. Past droughts, which curtained water service in some areas, have reminded people of the need to conserve water whenever possible. Service Standard 250 gallons/day for each residential household to 4 (four) persons +62 gallons for each additional person in the household. 90% of 1986 use for commercial connections and 95% of 1986 use for institutional uses, to be reevaluated upon improvement in prevailing drought conditions. 4-48 Community Development and Design August 30, 1999 ---PAGE BREAK--- EL CERRITO GENERAL PLAN Flood Control Service Function Flood hazards arise from natural rainstorms, failure of water storage facilities, and from the secondary effects of landslides. Storage tanks for East Bay MUD located south of Potrero Avenue below Bay Vista Court are considered at minimal risk of failure in a seismic event; however, their safety can be improved by installation of flexible couplers and check valves. Because the watersheds in El Cerrito's foothills are relatively small, risk of flood damage through the sudden release of accumulated water behind a collapsed mass of landslide debris is also small. The greatest flood hazard risk is posed by the current condition of the storm drain system that is under study for long term and comprehensive remediation. Only a small portion of Cerrito Creek is subject to inundation in the 1% (100 year event). Property damage from such an event is predictable, but would be confined to isolated locations in the flood path. The Contra Costa County Flood Control District establishes maintenance and development standards in the floodway. The City has also established restrictive development policies in its Municipal Code as a condition of continued eligibility for participation in the National Flood Insurance Program. Service Standard Containment of the 100-year flood event according to the federal Flood Insurance Rate Maps. Continued restriction on construction within flood hazard zones through establishment of minimum floor level elevations above the projected 100- year flood event level, as established by the Flood Control District. August 30, 1999 Community Development and Design 4-49 ---PAGE BREAK--- EL CERRITO GENERAL PLAN D. Goals and Policies The Implementation Measures associated with each policy are described in the following section of this chapter. Goal GM1: A coordinated regional and sub-regional planning system that provides better service and less congestion for residents of El Cerrito Policies Implementation Measures GM1.1 Cooperative Transportation Planning. Participate in subregional transportation planning activities of the West Contra Costa Transportation Advisory Committee, including development of Regional Route Action Plans. Cooperate in remediation of intersections in other jurisdictions operating at a level of service below the desired minimum threshold when it is demonstrated that El Cerrito's actions contribute substantially to adverse operating conditions at such intersections. Such cooperative action shall only be considered in the context of an application by the other jurisdiction for a Finding of Special Circumstances in accordance with application procedures established by the Contra Costa Transportation Authority. • Intergovernmental Coordination GM1.2 Implementation of Action Plans. Implement in a timely manner specific local actions of the Regional Route Action Plan following its adoption by the West Contra Costa Transportation Advisory Committee and the Contra Costa Transportation Authority. • Intergovernmental Coordination 4-50 Community Development and Design August 30, 1999 ---PAGE BREAK--- EL CERRITO GENERAL PLAN GM1.3 Conflict Resolution Services. Seek the services of the Contra Costa Transportation authority's conflict resolution process when needed to resolve disputes with other jurisdictions related to the development and implementation of Actions Plans and other programs described in the Growth Management Element. • Intergovernmental Coordination Goal GM2: Compliance with applicable level of service standards. GM2.1 Application of Standards. Strive to maintain the minimum V/C performance standard for each signalized intersection as described in Table 4-4. Level of Service Standards are considered to be met if measurement of actual conditions at the intersection indicates that operations are equal too or better than the specified minimum performance standard, or if El Cerrito’s Capital Improvement Program includes projects which, when constructed, will result in performance better than or equal to the specified minimum standard. • Capital Improvements Program • Development Regulations (zoning) August 30, 1999 Community Development and Design 4-51 ---PAGE BREAK--- EL CERRITO GENERAL PLAN GM2.2 Achieving Level of Service Standards. Consider amendments to the General Plan Land Use Element or Map, Zoning Ordinance, or other relevant plans and policies to alter land use intensity or vehicle trip activity so that any Basic Route signalized intersection which does not meet the minimum service level standard in Policy GM2.2 can be brought into compliance with said standard. Alternately, consider amendments to the Capital Improvement Program or other relevant programs and policies which will improve the capacity or efficiency of intersections not meeting the service standards through physical construction and improvements. • Development Regulations (zoning) • Capital Improvements Program GM2.3 Findings of Special Circumstances. Consider requesting from the Contra Costa Transportation Authority a Finding of Special Circumstances for any Basic Route signalized intersection that may not meet level of service standards as described in Policy GM2.1 when it can be demonstrated that the amendments described in Policy GM2.2 are infeasible under the Authority’s prescribed criteria. Prior to initiating the request, the City will evaluate policy options and changes, alternative standards, and proposed mitigation measures to achieve the minimum service levels and describe the findings upon which these alternatives were deemed infeasible. • Intergovernmental Coordination 4-52 Community Development and Design August 30, 1999 ---PAGE BREAK--- EL CERRITO GENERAL PLAN Goal GM3: Timely review of projects that are heavy traffic generators. GM3.1 Traffic Impact Study. Conduct a traffic impact study consistent with CCTA Technical Guidelines as part of the application review process for development proposals estimated to generate over 100 peak-hour vehicle trips. • Development Regulations (zoning) GM3.2 Finding of Consistency with Standards. Demonstrate that development proposals that generate over 100 peak-hour vehicle trips in the peak direction are consistent with the Level of Service Standards stated in Policy GM2.2, and the West Contra Costa Action Plan for Regional Routes prior to approval. Findings of Consistency may be made if a traffic impact analysis demonstrates that the project will not erode the minimum service standards at any Basic Route signalized intersection unless: Projects included in the City's Capital Improvement Program or Street Improvement Program will result in attainment of the desired standard and fully or partially offset the traffic impacts of the project; or Findings of Special Circumstances, including appropriate mitigation measures, have been adopted by the City of El Cerrito and the CCTA. • Development Regulations (zoning) • Intergovernmental Coordination GM3.3 Transportation Demand Management Ordinance. Adopt and implement a Transportation Demand Management (TDM) Ordinance. • Transportation Demand Management August 30, 1999 Community Development and Design 4-53 ---PAGE BREAK--- EL CERRITO GENERAL PLAN Goal GM4: Effective community-wide programs to reduce traffic impacts of new projects. GM4.1 Local Development Mitigation Program – Transportation. Adopt and implement a development mitigation program requiring developers to pay the costs necessary to mitigate impacts of their projects on the local and regional transportation system. • Traffic Impact Fee GM4.2 Local Street Maintenance and Improvement Funds. Support projects intended to meet or maintain Level of Service standards, to implement Action Plans for Regional Routes, and to provide mitigation for intersections Subject to Findings of Special Circumstances through Local Street Improvement and Maintenance Funds allocated by the Contra Costa Transportation Authority. Revenue from this source shall not replace private developer exactions pursuant to Policy GM4.1 for transportation projects necessary to meet or maintain minimum service standards challenged by new growth. • Intergovernmental Coordination • Capital Improvements Program GM4.3 Capital Improvement Program. Identify in the City's Capital Improvement Program funding sources, as well as intended phasing, for projects necessary to maintain and improve traffic operations. • Capital Improvements Program GM4.4 Compliance Reporting. Complete and submit the required compliance checklist materials required periodically by the Contra Costa Transportation Authority. • Intergovernmental Coordination 4-54 Community Development and Design August 30, 1999 ---PAGE BREAK--- EL CERRITO GENERAL PLAN Goal GM5: An effective system of providing urban services. GM5.1 Local Development Mitigation Program – Services. Adopt and implement a development mitigation program requiring developers to pay the costs necessary to offset impacts of their projects on the local police, fire and park service system. Ensure that the local development review process includes consultation with contact agencies supplying domestic water, sanitary sewage and flood control service so that cost impacts are identified and appropriate mitigations included on a cooperative basis. • Public Facilities Fee GM5.2 Performance Standard Review. As part of the City's development review process, or through the local CEQA review procedure for defined projects, evaluate the impact of the project upon public services and make findings appropriate to project approval under the following circumstances Performance standards will be maintained following project occupancy; Mitigation measures have been incorporated in project approval documents sufficient to maintain designated service standards; or Capital improvements sponsored by El Cerrito or the affected special purpose agency will ensure that designated service standards are maintained. • Development Review • CEQA Review August 30, 1999 Community Development and Design 4-55 ---PAGE BREAK--- EL CERRITO GENERAL PLAN GM5.3 Capital Improvement Program. Identify in the City's Capital Improvement Program funding sources, as well as intended phasing, for projects necessary to maintain police, fire and park service standards. Encourage outside agencies providing vital services to El Cerrito to maintain adequate funding and long-range facility planning activity to adequately anticipate future demands of growth and the life-cycle/replacement of equipment and infrastructure. • Capital Improvements Program • Intergovernmental Coordination GM5.4 Contributions to Improvement. Require new development to contribute to or participate in the improvement of public services according to the demand generated by the project occupants and users. • Public Facilities Fee • CEQA Review 4-56 Community Development and Design August 30, 1999 ---PAGE BREAK--- EL CERRITO GENERAL PLAN August 30, 1999 Community Development and Design 4-57 . r IMPLEMENTATION The following is a summary of the major tools available to the City for implementation of the policies in this chapter, Community Development and Design. 1 Beautification P ogram A city beautification program is excellent way to increase public awareness and participation in creating good design and quality spaces. City beautification programs can take many forms and involve both the public and private sectors. They can include; design awards for building design and landscaping, yard maintenance; landscape planting programs such as flower planting, street tree planting; and, public art projects or other civic improvement programs. They may also include the development of public scenic turnouts, rest stops, and overlooks to take advantage of views and vistas from the hillsides. Many city beautification programs are sponsored jointly by the city government and local civic organizations to promote civic pride while enhancing the physical appearance. 2. Building Code El Cerrito should consider adopting amendments to the Building Code that promote energy and better uses of natural resources. This could be the part of the charge to a citizen task force that looks into possible ways of encouraging El Cerrito to agree upon and adhere to applicable principles of sustainable development. 3. Capital Improvement Program The Capital Improvement Program (CIP) is a compilation of the capital improvements planned for construction over the next five years in El Cerrito. It includes cost estimates, the phasing of specific improvements and associated costs and methods with which specific improvements will be financed. The City should continue to conduct annual reviews of the CIP and add money for transportation, infrastructure, and public facility improvements as funding sources are identified. The CIP also provides the basis for planning for and funding of a civic center and other community facilities. 4. CEQA Review The City should ensure that the CEQA review process identifies impacts of new development upon the transportation system, utilities, and public facilities. 5. City Entry Design Program The City can sponsor the design and construction of entry monuments and other landscape improvement projects to improve the appearance of city streets. These landscape improvement projects can also be developed in cooperation with civic organizations or sponsored by local business to create new entry signs, monuments, and landmarks at major entry points to El Cerrito. ---PAGE BREAK--- EL CERRITO GENERAL PLAN 6. Creek Restoration The City may contribute through its storm drainage improvement program, or seek funding from other agencies or private sources, to restore various segments to creeks or other streets (on surface or through removal of pipes) and restoration of riparian habitats. 7. Design Guidelines Design guidelines are a tool for ensuring that development is compatible with the surrounding area and that it functions well for the community. To the extent possible, the guidelines should be specific: guidelines that are quantifiable should be considered for incorporation into the development regulations. 8. Development Incentives Providing development incentives to developers and property owners can influence good community design. Development incentives can be in the form of density and development intensity bonuses, reduced development standards reductions in parking requirements, height restrictions, setbacks, etc.). Incentives may be granted where they promote closer adherence to City objectives by providing desirable features, such as exceptional design, creative design of off-street parking, enhancements to public amenities, environmental benefits, such as creek restoration, and similar benefits to the community. 9. Development Regulations (zoning) The development regulations, primarily the zoning regulations and subdivision ordinance, provide the standards for development, prescribe allowable uses, contain specific incentive provisions, and include other standards and procedures related to approval of development projects. 10. Development Review The development review process includes discretionary review by the Planning Commission and the Design Review Board, based on consideration of General Plan objectives and policies, and criteria established by the zoning and subdivision ordinances and other city regulations and adopted guidelines. Most discretionary actions are subject to the requirements of the California Environmental Quality Act (CEQA). The development review process also includes administrative review of projects to verify compliance with Planning Commission and Design Review Board requirements, as well as standards set by the City through adoption of building and fire codes, engineering standards, and other regulations and ordinances. Development review should be used to assess the impact of new development on the demand for transportation and public facility improvements and to implement mitigation measures and other mechanisms to help finance needed improvements. 11. Economic Development Strategy The city should maintain a strategy to retain and attract businesses. This strategy should be reviewed frequently to ensure that it reflects current economic and business trends and makes use of the city’s advantages as a business location. The 4-58 Community Development and Design August 30, 1999 ---PAGE BREAK--- EL CERRITO GENERAL PLAN city staff, elected officials, and business organizations should then actively market the city as a location for desirable types of businesses. 12. Fiscal Impact Assessment t i The City should consider development of a fiscal impact assessment process that would identify the economic and fiscal impacts of new development projects. The process should establish size thresholds that trigger the assessment, integrate the assessment with CEQA review, and ensure that the fiscal impact assessment is not an undue burden on economic development of the City. Also see Implementation Measures in Chapter 6 on a Public Facilities Fee and Traffic Impact Fee. 13. General Plan Consistency Review Review all public projects for consistency with the General Plan as early as possible in order to minimize wasted effort on projects deemed not to be in conformance. 14. Grant Funds The City should determine whether grant funds are available from federal or state sources for restoring creeks, preparing design guidelines to reduce crime, and developing guidelines for pedestrian friendly areas near either or both BART stations. 15. His orical Inventory and Designation The City should initiate, or work with a local civic group to initiate, an inventory of structures or sites that may have architectural, historical, archeological, or cultural significance to the community. The City should then consider action to list the most significant structures or sites on the California Register of Historical Resources and the National Register of Historic Places. 16. Housing Program The city’s housing program consists of those actions necessary to achieve the policies of the General Plan and the goals of the Housing Element. The housing program should monitor progress toward achieving goals to ensure that suitable land and incentives are available. The housing program also includes the responsibilities of the Redevelopment Agency to support affordable housing goals. 17. Intergovernmental Coordinat on The City should coordinate with adjacent jurisdictions, the Metropolitan Transportation Commission, Contra Costa County, AC Transit, BART, Caltrans, and other applicable agencies. The Contra Costa County Transportation Authority (CCTA) West County Action Plan for Routes of Regional Significance (12/9/94) defines a regional vision for Hercules, Pinole, San Pablo, Richmond, and El Cerrito. This document defines many of the City’s positions with respect to regional transportation improvements. Some of the key Action Plan items are: a. Support inclusion of the West County BART extension in the MTC Track 2 Regional Transportation Plan (RTP) project lists. August 30, 1999 Community Development and Design 4-59 ---PAGE BREAK--- EL CERRITO GENERAL PLAN b. Pursue every opportunity to speed the funding and construction of the West County BART extension to Crockett. c. Expand efforts urging MTC to determine the best express transit system(s) for the Interstate 80 corridor and, based on the results of the MTC study, encourage timely implementation of planned transit capital and service improvements. d. Promote Carquinez Bridge alternatives that will achieve mainline metering of Interstate 80 into West Contra Costa County. e. Support efforts by Caltrans, CCTA, and MTC to tailor capacity of the Carquinez Bridge improvements to capacity. f. Support efforts by AC Transit to study the feasibility of bus rapid transit treatments along San Pablo Avenue. g. Support mixed-use development, high employment commercial, and higher- density residential development in transit corridors and near BART stations. h. Consider additional transit mitigation alternatives, as appropriate, in future Action Plan Deficiency Strategies. In addition to, and in support of, these regional key items, the following are City of El Cerrito interagency coordination positions: a. As opportunities present themselves, improve freeway access to El Cerrito, particularly around the Del Norte area and at the Central Avenue interchange. b. Oppose transportation projects that would diminish access to Interstate 80 from El Cerrito. c. Oppose capacity enhancements to San Pablo Avenue except when the improvements serve local traffic and do not compromise bus, pedestrian and bicycle travel. d. Support physical enhancements to San Pablo Avenue to make it a transit and pedestrian friendly multi-modal street. In addition to the above, the City should work with Caltrans to install adequate highway landscaping improvements along I-80. 18. Joint Watershed Goals In 1995 the cities of El Cerrito, Albany, Berkeley and Richmond, the East Bay Regional Park district, and the University of California at Berkeley, endorsed a goals statement expressing mutual intentions to restore creeks to natural conditions, to make use of creek corridors for pedestrian and bicycle transportation purposes, to assure adequate flow of freshwater for nourishment of creeks, and to promote public awareness of the value of healthy watersheds. The statement includes a mutual agreement to seek opportunities for grants and other cooperative efforts. 4-60 Community Development and Design August 30, 1999 ---PAGE BREAK--- EL CERRITO GENERAL PLAN 19. Parking D stricts i Parking districts can be formed by local property owners to help finance needed parking in impacted commercial areas. Parking districts provide for centralized parking lots and parking structures that allow participants to build and rehabilitate existing buildings at a higher intensity of development. 20. Public Facilities Fee The City should consider adopting a citywide public facilities impact fee ordinance, under the requirements of the applicable laws, to fund new community and public facilities, including public safety facilities, required to serve new residents and employees in the City. 21. Redevelopment Program In support of its economic development strategy the City may choose to use the authority of its Redevelopment Agency in attracting and retaining business and other activities, and in providing supportive public improvements. 22. Sign Ordinance The sign ordinance is tool to regulate the appearance, size, and location of signs in the City of El Cerrito. Well-designed signs contribute to the overall visual quality of the built environment by reducing clutter as well as helping in way-finding and locating business and other activities. 23. Special Districts Special districts can be formed by local property owner to help finance desired neighborhood improvements including street lighting, streetscape enhancements, and landscaping improvements. 24. Specific Plans Certain areas of the city need to be planned comprehensively, but in more detail than can be done in a general plan. A specific plan can integrate land use, design, transportation, utilities and other issues into an action strategy. Areas to be considered for a specific plan include the Midtown area along San Pablo Avenue, extending from south of Moeser to north of Manila Avenue, and the Del Norte BART station area. A specific plan for the El Cerrito Plaza area, including the BART station and the area along San Pablo Avenue between Fairmount and Central avenues, should be prepared to provide overall direction during the next 20 years. 25. Street Tree Program A citywide street tree planting program can dramatically enhance neighborhood streets, increase property values, and improve the overall appearance of the city. The city should continue its street tree planting program by offering free street trees to any resident or business in the City. 26. Streetscape Improvement Program Many of the commercial streets in El Cerrito can be improved with a concerted effort to provide new improvements to make the right-of-way more attractive and August 30, 1999 Community Development and Design 4-61 ---PAGE BREAK--- EL CERRITO GENERAL PLAN pedestrian friendly environments. Selected streets can be improved with pedestrian streetscape amenities, decorative lighting, decorative crosswalks, and additional landscaping. Special street improvement projects can be phased over time and included in revitalization efforts of major areas along San Pablo Avenue. 27. Traffic Impact Fee To help avoid public costs of traffic impacts, the City should consider collecting a traffic impact fee from developers of projects, citywide. Fee payments would fund transportation improvements to mitigate the traffic impacts of new development. The traffic impact fee would be in-lieu of the off-site mitigation requirements, but would not replace the developer’s responsibility for frontage improvements. The traffic impact fee may be used to fund roadway extensions, intersection improvements, safety improvements, or improvements and amenities to pedestrian, bicycle or transit facilities. 28. Travel Demand Management (TDM) Support and promote TDM measures to reduce the percentage of person trips made by automobile and to reduce the annual vehicle miles of travel. Reduce the percentage of trips made by automobile and provide the opportunity and facilities to divert trips from automobiles to other modes. Encourage small businesses in areas of employment concentration to form cooperatives that can collectively provide effective TDM options to employees. 29. Underground Utility Districts Creating underground utility districts is a way of financing undergrounding of overhead utility lines. This process can speed up the process of removing overhead utility lines along selected streets. 4-62 Community Development and Design August 30, 1999