1 - Introduction 2 - Vision Statement 3 - Land Use 4 - Circulation 5 - Conservation 6 - Noise 7 - Safety 8 - Recreation 9 - Historical 10 - Community Design 11 - Glossary - Maps CHAPTER THREE LAND USE ELEMENT Introduction The Land Use Element has the broadest scope of the mandatory General Plan elements. Government Code Section 65302(a) describes the required contents of the Land Use Element as follows: "A land use element ... designates the proposed general distribution and general location and extent of the uses of the land for housing, business, industry, open space, including agriculture, natural resources, recreation, and enjoyment of scenic beauty, education, public buildings and grounds, solid and liquid waste disposal facilities, and other categories of public and private uses of land. The land use element shall include a statement of the standards of population density and building intensity recommended for the various districts and other territory covered by the plan". The State of California Office of Planning and Research publication General Plan Guidelines (1998 Edition) further explains the land use element: "The land use element functions as a guide to planners, the general public, and decision makers as to the ultimate pattern of development for the city or county. The land use element has perhaps the broadest scope of the seven mandatory elements ... it plays a central role in correlating all land use issues into a set of coherent development policies ... In practice, it is the most visible and often used elements in the local general plan. Although all elements carry equal weight, the land use element is often perceived as being the most representative of the general plan. The land use element has a pivotal role in zoning, subdivision, and public works decisions. The element's objectives and policies provide a long-range context for those short term actions." Existing Land Use Existing land use information is essential to an understanding of current development patterns and acreages devoted to particular land uses. Existing land use information for the Grass Valley Planning area was developed by the Grass Valley Community Development Department in early 1999. The information was entered into the Quad Knopf/City of Grass Valley geographic information system on a parcel basis, then used for statistical analysis and mapping. Figure 3-1 is the Existing Land Use map. General Plan Land Use Classification System To translate the goals, objectives, and policies of the Land Use Element into diagram or map form, a set of designations or classifications must be adopted to serve as a guide for general land use distribution. Determining the land use designation for any area is generally based on multiple criteria, which may include: Existing patterns of development when compatible with goals, objectives, and policies of the General Plan Accessibility/circulation Availability of public services and facilities and potential for their expansion or extension Geo-physical characteristics of the area such as slope, wetland or flood prone designation, soils, geology, vegetative cover, and biological significance Existing parcel size Desire to protect or buffer certain uses from other, incompatible uses The land use designations described below and used in this General Plan have been modified from the Grass Valley General Plan adopted in 1982, with some notable changes. Following is a summary outlining the new General Plan Land Use Classification System structure. Residential Land Uses Urban Estate Density (UED) Urban Low Density (ULD) Urban Medium Density (UMD) Urban High Density (UHD) Commercial Commercial (C) Office and Professional (OP) Industrial Manufacturing-Industrial (MI) Mixed Use Business Park (BP) Special Development Area (SDA) Overlay Designations Town Center (TC) Open Space Opportunity (OSO) Public and Quasi-Public Public (P) Institutional, Non-governmental (ING) Schools (S) Utilities (U) Parks and Recreation (PR) Right of Way (ROW) Open Space (OS) The 2020 General Plan contains two concepts not found in previous Grass Valley General Plans. They are the 1) Mixed Use and 2) Overlay Designations categories. Within the Mixed Use category are Business Park (BP) and Special Development Area (SDA). For SDA-designated areas, the City shall require petitioning owners to prepare additional plans (such as a specific plan, master plan, or similar instrument) for subsequent submittal to and approval by the City. This procedure may be required for BP-designated areas, at the discretion of the City. Mixed Use allows, but does not require, a combination of residential, "job-generating" and other land uses. Within a Business Park (BP) designation, for example, a typical "mix"includes light industrial and office-professional land uses operating compatibly within the conditions imposed by the business park, as well as the City. Individual land uses within any Mixed Use category are to be designated according to their most generic characteristics (UMD, M-I, OP, etc.). Special Development Area (SDA) is intended to be a temporary designation, pending adoption of a specific plan, master plan, or similar instrument. Thereafter, the General Plan Land Use Classification System land use designations (see page 3-2) or adopted specific plan provisions replace the SDA designation. Overlay designations are 1) Town Center and 2) Open Space Opportunity. Overlay maps separate from the Land Use Plan map are used to depict Town Center and Open Space Opportunity areas. The Land Use Plan map, itself, depicts land use designations, but does not show the overlay maps. Town Center (TC) is intended to pertain to and define downtown Grass Valley, the original 1872 Townsite, and areas near downtown which are considered to be "at the doorstep" of downtown. The Town Center is intended to be the City's central "neighborhood" for purposes of design standards, architectural treatment, streetscape improvements, and historical preservation and enhancement. Open Space Opportunity (OSO) has been a General Plan land use designation utilized by previous General Plans. By making OSO an overlay over the General Plan Land Use map, the City simultaneously expresses its intent to effectuate permanent open space while acknowledging the rights of owners to utilize their properties in other ways if permanent open space status is not achieved. Where OSO designation is implemented on a permanent basis, underlying land use are to be either designated Open Space (OS) or, if appropriate Parks and Recreation (PR) on the Land Use Plan map. General Plan Land Use Designations Defined and Described Urban Estate Density (UED) The lowest density residential category in the General Plan, UED, requires one unit or less per gross acre. For properties having access to both public water and sewer utilities, the density standard is a maximum of one unit per gross acre. With one of the two utilities (public water or sewer), one-half units per acre (two acres per unit) is the maximum density. With neither public water or sewer, the maximum is one-third units per acre (three acres per unit). The designation is utilized on steeper slopes, in areas already subdivided into estate-sized lots, and in other areas where location, availability of public services, and public policy indicate lower overall residential densities. UED may, alternatively, be used to encourage either low density large lots or higher density clusters, both associated with lower overall population densities. Urban Estate Density is most compatible with the Zoning Ordinance's Residential Estate (RE) district. Urban Low Density (ULD) ULD requires between 1.01 and 4.0 residential units per gross acre. ULD is intended primarily for single family detached houses, although higher density single family patio homes or town houses could be accommodated, if offset with sufficient open space to maintain the gross density within the indicated range. ULD is most compatible with the following Zoning districts: Single Family Residential (R-1) and Two-Family Residence (R-2) districts. Urban Medium Density (UMD) UMD requires between 4.01 and 8.0 residential units per gross acre. UMD is intended to accommodate single family detached and attached homes, single family patio homes, duplexes, and town houses. Both single family and multi-family housing types are facilitated by UMD designation. Urban Medium Density relates directly to the following Zoning categories: Single Family Residential (R-1); Two-Family Residence (R-2) and Medium Density Residential (R2A). Urban High Density (UHD) UHD requires between 8.01 and 20.0 residential units per gross acre. UHD is intended to accommodate town house or row house styles, higher density apartments and condominiums (multiple family structural types), without distinction as to owner- or renter-occupancy. UHD relates directly to the Zoning Ordinance's Multiple Family (R-3) district. Commercial (C) Commercial is a broad category intended to encompass all types of retail commercial and commercial service establishments in any one of a variety of locations. Locations include the Downtown Central Business District, shopping centers, local or neighborhood locations, highway-oriented locations, or concentrations along major streets. Commercial (C) relates to the following zoning classifications: Business (C-1); Central Business (C-2); Downtown Central Business (C-2-A); and Heavy Commercial (C3). Office and Professional (OP) The OP classification provides for concentrations of free-standing offices and large office complexes. The designation is intended to facilitate both offices and supporting activities and land uses. Appropriate office uses include medical, dental, legal, architectural, engineering, contractors, and banks. Offices within OP areas should be characterized by relatively low traffic volumes and the absence of outdoor advertising and storage. Office and Professional (OP) designation relates most directly to the Zoning Ordinance's Office Professional (OP) and Corporate Business Park (CBP) districts, and is also compatible with the several commercial districts, particularly Downtown Central Business (C-2-A). Manufacturing-Industrial (M-I) M-I designation is intended to accommodate a variety of industrial and service commercial uses. Although occupied by free-standing businesses without any overall internal plan or restrictions, M-I districts benefit from some clustering of compatible industrial or service commercial uses. Typical uses in M-I designated areas are: light manufacturing; automotive services, warehousing/ distribution; and wholesale-retail outlets. The potential for adverse impacts from M-I activities heightens the importance of proper location (relative to the surrounding community) and use of perimeter buffering. Zoning districts compatible with General Plan M-I designation are Light Industrial (M-1), General Industrial (M-2), and Industrial/Services (I/S). Business Park (BP) The Business Park designation replaces the Planned Employment Center (PEC) designation introduced in the 1982 Grass Valley General Plan. Business Park is categorized as one of two mixed use designations (Special Development Area, SDA, is the other). No changes are made in the substance of the designation, but the Business Park title is both more descriptive and relates better to zoning definitions. The intent of the BP designation is to accommodate a variety of employment-generating land uses in a master-planned, campus-type setting, designed to preserve and enhance the natural environment and to be fully integrated into the larger community. Employment types include a full range of industrial and commercial land uses. BP designation relates directly to Office Professional Zoning (OP), plus two additional Zoning districts added by Ordinance in 1997: Corporate Business Park (CBP) and Industrial/Services (I/S). Both CBP and I/S allow mixed land uses and contain specific performance and design standards. Special Development Area (SDA) SDA designation is reserved for areas to be master planned or subject to a specific plan. When imposed, SDA designation replaces previous General Plan designations within the subject property (ies), and serves as a temporary "holding" classification pending completion and approval of a specific plan, master plan, or similar instrument. SDA is a mixed use designation: a variety of land uses might be proposed and approved under the aegis of the specific plan, master plan, or similar instrument. SDA relates directly to the Interim Development Reserve (IDR) and Specific Plan (SP) Zoning classifications. Town Center (TC) - Overlay map Town Center is one of two new "overlay" designations (Open Space Opportunity is the other). The TC overlay defines Downtown Grass Valley. Town Center designation recognizes that design and architectural features are of greater concern than land use designations in downtown, where "mixed use" is both accepted and encouraged. Protection and enhancement of Downtown's historic character are the primary intentions of the TC district. Various land uses may be accommodated in the TC district, so long as historic character and design/architectural standards are upheld. "Underlying" land use designations are to be maintained on parcels within the TC overlay, although TC standards override those of comparable zoning districts in cases of conflict. Town Center encompasses Downtown Grass Valley properties clustered along South Auburn, Mill, and Main Streets. Street-level commercial, specialty shops, restaurants, upper level residential and offices, and cultural uses are encouraged. As an overlay designation, Town Center does not relate directly to specific zoning districts. Open Space Opportunity (OSO) - Overlay map Open Space Opportunity is one of two "overlay" categories. OSO designation may be used to acknowledge, reserve, and protect open space for any of the purposes of open space defined by State law: preservation of natural resources; managed production of natural resources; outdoor recreation; public health and safety. OSO designation may be used to protect either linear features (such as riparian corridors, flood zones, or recreational trail corridors) or non-linear features (parcels comprising would-be nature parks or forest preserves, for example). Underlying OSO designation may be any generic General Plan designation. OSO may be imposed to reflect a permanent imposition of open space status based on regulations, easements, or setbacks. Conversely, it may be used temporarily to show public intent to secure permanent open space status where such status does not yet exist. The OSO designation may be removed if satisfactory arrangements to secure such status from a property owner are not implemented. As an overlay designation, OSO does not necessarily relate to specific zoning districts, although it is directly compatible with the Open Space (OS) Zoning district. Open Space (OS) - depicted on the Land Use Plan map Open Space (OS) designation indicates that permanent open space status has been secured. Examples of Open Space designations on the Land Use Plan map are areas set aside through development agreements or previous development project conditions of approval, areas subject to current regulation which effectively precludes development (possibly unique natural areas, wetlands, or high hazard zones), areas which have been dedicated to the City or other governmental entity, or areas placed in permanent open space by virtue of appropriate easement acquisition, CC&Rs, or similar legal provisions. OS designation may apply to lands owned by either private parties or public agencies, although public open space land might alternatively be designated Public (P) or Park and Recreation (PR). Public (P) Public designation is used to identify areas in public sector ownership/control, and used for the purpose of providing non-commercial facilities and services to meet public needs. Ownership and control may be that of general purpose governmental units (city, county, State) or quasi-governmental entities (special districts, school districts, commissions, authorities). Purposes for which Public (P) designated areas are to be used are activities typically undertaken by the owning or controlling entities. Examples are: administrative and other public-sector facilities, public parks, natural areas, community centers, fire stations, schools and school properties, hospitals, public senior or child care facilities. P designation is most comparable to the Public (P) Zoning district. Institutional, Non-governmental (ING) Institutional, Non-governmental (ING) designation is a new designation in the 2020 General Plan. ING is used to identify areas in non-governmental institutional ownership/control. It is intended to accommodate facilities and services to meet community needs. Ownership and control may vary: non-profit organizations, medical and related health care institutions, religious institutions, private academic institutions, pubic service clubs, and the like. Purposes for which ING designated areas are to be used are activities typically undertaken by the owning or controlling entities. Examples are: religious institutions and related properties, administrative facilities, recreational areas, community centers, meeting halls, private schools and school properties, hospitals, senior and child care facilities. ING designation is roughly comparable to the Public (P) Zoning district, although it may relate to various other classifications, depending upon the activities being undertaken. Schools (S) Schools (S) designation is used specifically to reserve sites to be limited to school facilities and grounds. The directly related Zoning district is Public (P). Utilities (U) The Utilities designation may be used to acknowledge or reserve sites for electric generation/distribution, water storage/treatment/distribution, wastewater collection/treatment, or natural gas/propane transmission/storage/distribution. Administrative and equipment storage and repair facilities operated by public utilities may also be designated as Utilities. The primary intent of the Utilities designation is to acknowledge the unique operating characteristics of utility operations, and to assure the mutual protection of utilities and surrounding areas from adverse impacts. The compatible Zoning district is Public (P). Conceivably, utility sites might be compatibly located within any Zoning district, if properly conditioned to assure compatibility. Parks and Recreation (PR) PR designation may be used to acknowledge or reserve sites for parks and public recreation, including: existing or anticipated parks, public outdoor recreation sites, campgrounds, and the like. PR may also include natural areas intended for recreational use: open space lands, trails and pathways, flood plains, and riparian zones. Parks and Recreation designation is compatible with the Recreation (REC, adopted in 1997), Open Space (OS) and Public (P) Zoning districts. Selected Zoning Districts and Concepts Pertinent to the General Plan Planned Unit Development (PUD) Zoning. A floating zone allowing flexibility and innovation within a plan for the development of an area, including concepts as cluster development, a mixture of housing types and of land uses, and common ownership of open space and community facilities. Specific Plan (SP) Zoning. Provides for the preparation, adoption, and administration of specific plans as a means of systematically implementing the General Plan. Specific Plan enabling law: Government Code Sections 65450-65554. Interim Development Reserve (IDR) Zoning. Identifies the development potential of an area, but postpones exact zoning boundary designations until after preparation of a master zoning plan or specific plan. IDR Zoning may be used as a base zoning district or in combination with other zoning district symbols expected to be included following master plan completion. IDR is typically used for land to be annexed to the City, where City zoning is expected to be essentially the same as County zoning. Combining Zones. Combining zones are used in conjunction with basic zones, and are used to address special concerns and afford special protections not otherwise applicable to the base district. Combining districts are Historical (H), Design Review (DR), and Mobile home and Mobile home Park (MMP). Mixed Use Zoning. Allowance of two or more uses on a single parcel, or in a single structure or development project. General Plan/Zoning Compatibility Land uses associated with a particular General Plan designation may be permitted (either by right or conditionally) in several Zoning districts. The following General Plan Designation/Zoning Consistency Table (Table 3-1) identifies the Zoning categories most compatible with comparable General Plan classifications. Population Density and Building Intensity Standards A General Plan must contain standards for population density and for building intensity, as established by California case law. The courts further defined population density as "numbers of people per acre and not dwelling units per acre." Table 3-2 shows standards related to population density and building intensity for the various General Plan land use designations. The standards are: Minimum Parcel Size (in acres or square feet) Maximum Units per Acre (for residential designations) Maximum Population per Square Mile (for residential designations) Maximum Building Coverage Maximum Floor Area Ratio (for non-residential designations) Maximum Height (Residential) Maximum Height (Non-Residential) TABLE 3-1 GENERAL PLAN LAND USE DESIGNATION & ZONING CONSISTENCY TABLE 3-2 POPULATION DENSITY & BUILDING INTENSITY STANDARDS Significant Trends As with any long range plan, the 2020 Grass Valley General Plan is based in part upon certain assumptions and expectations about prevailing social and economic trends. Identification and interpretation of significant plan-affecting trends relied on several sources: City officials, the General Plan Steering Committee, public opinion and advice at workshops and the public opinion survey, and technical research, expertise, and observations of the consulting team. Probable trends and tendencies, termed "dynamics and directions", were developed for the following major land use categories: Commercial Office/Professional Manufacturing/Industrial Residential Commercial Dynamics Commercial "growth" (jobs, sales, tax contributions) occurs mainly in the form of turnover and upgrading within existing shopping centers and commercially-used buildings. Commercial growth is not solely dependent upon a continuing supply of vacant, readily developable, and commercially-zoned land. Commercial turnover and upgrading in Grass Valley will occur in response to several major stimuli, particularly Sierra College growth and development; growth in the medical/health care sector; a growing tourism/visitor-induced economy; and demographic changes, particularly the large and growing senior population. Since 1980, local commercial "infrastructure" has expanded faster than local population growth. With large, modern shopping centers, Grass Valley is capable of fulfilling its role as the regional commercial center for Western Nevada County. In the process, an "equilibrium" between demand (placed on the City as regional center) and supply (establishments, quality of goods, selection, etc.) has been established. Grass Valley is better able to serve the commercial needs of Western Nevada County than it was prior to 1980. In addition to the continued "pull" of Downtown, the Glenbrook area and Pine Creek Shopping Center area have contributed to Grass Valley's regional preeminence. Downtown Grass Valley will remain a viable commercial node, as well as a cultural and historical focal point. Strong growth is anticipated for business-related support retail and services, medical-related goods and services, tourist-related services (lodging, restaurants), and enterprises geared to senior citizens and retirees. Commercial Directions Intensified commercial activity, resulting from turnover, upgrading and re-development: in the Glenbrook area, Pine Creek Shopping Center vicinity, and along East Main Street from Highway 20/49 to Glenbrook. Commercial re-development, resulting in increased commercial activity in the following areas: East Main Street; Colfax Highway east of downtown; and South Auburn Street south of Highway 20/49. Limited new commercial clusters will develop. These will occur within annexation areas, as committed by annexation agreements and in the Highway 49/LaBarr Meadows Road (Bear River Mill site) vicinity. New clusters may help to fill "niches" not otherwise filled (large floor area establishments, specialized tourism functions, neighborhood service). Some conversions, primarily of residences to commercial uses. Mixed use within new residential developments and in some older neighborhoods. Commercial uses within business parks, as allowed by City regulations. Fringe commercial intensification, primarily at the immediate "edges" of the Glenbrook area and Downtown. Office/Professional Dynamics Considerable future demand fueled by increases in medical services, professional services (engineering, legal) and business support services. Strong demand for small office-space leasing, to accommodate numerous small business operations. This demand will be somewhat tempered by in-home business boom. Less certainty concerning inclinations and tendencies of medium to large businesses, which have the options of building their own facilities, leasing within business parks, or leasing in existing for-lease office buildings. Business park office space occupants will be in the medium to large category -- larger space leases but representing a small percentage of total office/professional occupying business community. Probable exponential increase in in-home business relying heavily on technology and telecommunications. Effects may be either modest or dramatic, in relation to the market for office space. Increased demand in office space for services requiring face-to-face client contact, with possible flat or declining demand for other types of services. Quality of office location, surroundings, will be of increasing importance. Office/Professional Directions Business parks -- supply of office/professional land in business parks to be substantial in early years, with Whispering Pines and Litton property available. Hospital vicinity and East Main strong contenders for new medical-related offices. Downtown office space increase, including street-level, upper stories of some downtown buildings, downtown fringe expansion, and some residential (or even commercial) conversion to offices. More modestly-priced small office complexes in Glenbrook and immediate vicinity, keeping with national trends of offices in or near busy shopping centers. Introduction of small or complexes and clusters, in contrast to larger business parks. Building up (2nd and 3rd stories) to facilitate offices in advantageous locations. Manufacturing/Industrial Dynamics Difficult to predict, partly because relocations to and startup locations in Grass Valley are often 1) quality of life decisions of corporate decision-makers and 2) high tech firms, whose products and fortunes ebb and flow, defying precise long-term prognostication. Difficult to predict relocations and expansions of "basic" industries, whose products are almost exclusively exported from the Western Nevada County region, and whose fortunes are not tied to increases in local consumption, population, or wealth. For some high tech, research and development oriented firms, local linkages to other firms in the industry provide a rationale for a Grass Valley location. Small manufacturing, distribution, and industrial service companies are predominant in the local industrial community, and are likely to continue to predominate. This has implications for land and facility requirements. While Grass Valley has strong quality of life and high tech "think tank" advantages, it is comparatively disadvantaged in terms of transportation facilities (railroads, interstate highways, commercial air facilities) and large available water supply. Industries requiring those locational features will locate elsewhere. Manufacturing/Industrial Directions Intensification of industrial land uses and overall upgrading possible at Loma Rica Industrial Park. County interest in enhancement, plus possible availability of Grass Valley City sewer service, point to industrial/employment expansion at Loma Rica Industrial Park. Existing business parks, including the both Whispering Pines and the new Litton Business Park, offer considerable potential for certain types and sizes of light industrial and research and development companies. Additional large quantities of land designated "Planned Employment Center" (allowing industrial and other land uses) exist within three of the Special Development Areas (Loma Rica Ranch, North Star, Kenny Ranch). The term "Planned Employment Center" is being replaced by "Business Park", effective as of adoption of the 2020 General Plan. Residential Dynamics Demographics continue to dictate a large proportion of single-member and small households (seniors and non-senior singles, empty nesters, young married couples without children, divorced persons). Affordability, long a factor in Grass Valley's housing market, will remain a strong influence. Multi-family housing now accounts for over 40% of Grass Valley's housing stock. Grass Valley's multi-family housing constitutes 75% of the County total. The importance and influence of multi-family housing will grow during the 20-year planning period, and is projected to provide 45% of all new housing in the Planning Area. An older (on average) single family housing stock indicates a future need for widespread code enforcement, rehabilitation, and conservation. Neighborhood enhancement and preservation are considered essential "community builders" by city officials and citizens alike. As neighborhood strengthening improvements such as parks, trails, sidewalks, and other public amenities are provided, investment in and maintenance of older housing occurs. The General Plan projects the need for a net increase of 2,820 new housing units in the Grass Valley Planning area from 1999 to 2020. Of these, 55% (1,551) are projected to be single family units, 45% (1,269) multi-family units. It is assumed that 1,200 additional residential accommodations will be provided in the form of senior living/care facilities of various types during the 20-year planning period. Residential Directions Just over one-half of the 20-year housing demand in the Planning area can be accommodated through a combination of infill (vacant residentially-designated land within the city) and annexation agreement commitments to Loma Rica Ranch, North Star, and Kenny Ranch. Optimally, 32% (900 units) of total housing demand (2,820) can be accommodated through infill. Only 23% (643) of the projected 20-year net new housing demand can be satisfied as allowed by annexation agreements, even if the three areas were to "build out" their full housing unit allocations within the 20-year time frame. Multi-family demand will likely be met by a medium and high density residential-designated areas in infill areas of the City and new neighborhoods following annexation. The East Bennett neighborhood has been designated medium density to fill this need at a relatively close-in location. Current annexation agreements with Loma Rica Ranch, North Star, and Kenny Ranch could be revised to specify the densities required for multi-family housing and/or numbers of multi-family units targeted. Land Use Plan Map Figure 3-2 is the 2020 General Plan Land Use Plan map, depicting land uses for the designations described previously. The Land Use Plan map is the end result of: Existing (1982) General Plan designations, and a City policy to minimize changes in order to maintain continuity with past regulations. Supply/Demand studies of various land uses, conducted by General Plan consultants as part of the 2020 General Plan planning process. The goals, objectives, policies developed during the planning process and contained within this General Plan. Provisions of General Plan Elements, particularly the Housing Element and Mineral Resources Element, unaffected by the 2020 General Plan update. Examination of land use alternatives by the General Plan Steering Committee, and selection of a preferred alternative. Alternatives examination and selection considered major "direction setting" factors as public service extension and development within identified watersheds. Criteria listed on page 3-2 of this Chapter. City Council decisions based on localized and site-specific considerations. Twenty-Year Development Map The General Plan Land Use Plan map assigns a land use designation to all properties within the Planning Area. If the entire Planning Area were to be developed as depicted on the Land Use Plan map, the Planning Area would be considered "built out". The basic projections developed during the General Plan process for the 20-year planning period (to the Year 2020) -- population, housing units, employment, and demand for land -- clearly indicate that less than full "build out" will occur by the Year 2020. Figure 3-3, the Twenty Year Development map, divides the Planning Area into three geographic areas: core, fringe, and periphery. For each area, percentages of remaining development capacity is shown for 1) residential land uses and 2) employment generating land uses (commercial, manufacturing, business park, etc.). Percentages are contained in a tabular form on Figure 3-3. Using Figure 3-3 in combination with the Land Use Plan map (Figure 3-2) the "buildout capacity"of various land uses can be determined (numbers of units for housing, acreage for employment generating land uses). Thus, within the core area, 95% of the potential housing units and 50% of commercial/industrial acreage is projected to be developed during the Planning period. In all three geographic areas (core, fringe, and periphery) residential land use is projected to approach capacity, or "build out", to a greater extent than employment-generating land use by the Year 2020. Figure 3-3 and the percentage formula thereon is not intended to be used as a phasing or sequencing plan for future annexations. Special Development Areas (SDAs) Four areas are designated Special Development Area (SDA) on the General Plan Land Use Plan map. They are Loma Rica Ranch, North Star, Kenny Ranch, and the Bear River Mill Site. The first three have been subjects of annexation agreements between the City of Grass Valley and the respective owners. Annexation agreements have resulted in the allocation of acreage to various land uses, and a fixed number of housing units to be allowed. Figure 3-4 shows the locations of the four SDAs. Included in Figure 3-4 are small insets containing the annexation agreement acreage allocations and housing unit commitments for the three SDAs with existing annexation agreements. The General Plan does not locate the land uses (as committed by annexation agreements) on the Land Use Plan map. This will be accomplished during subsequent development planning. The General Plan does, however, encourage the following regarding land use in the North Star SDA, in order to assure the area's neighborhood continuity with neighborhoods in southern Grass Valley: North Star is encouraged to locate all residential and neighborhood commercial land uses in the northern one-third of the North Star property, in order to provide a linkage to existing development within the City and facilitate efficient City service and infrastructure extensions. Additional SDAs may be designated in the future. Town Center Overlay Figure 3-5 is the Town Center Overlay map. As described earlier, the Town Center concept is intended to cover downtown and the surrounding areas. Town Center is intended to be used to designate selected areas and properties for mixed uses, or to apply special development criteria or guidelines separate and apart from those peculiar to their underlying (Land Use Plan map) land uses. Downtown Grass Valley The 2020 General Plan perceives Downtown Grass Valley as continuing its role as the cultural center of the broader western Nevada County region, and recommends policies to assure that role. Numerous individual projects are identified as appropriate for Downtown: a plaza, a conference center, performing arts center; and even transit center. Figure 3-6 is map of Downtown, using the boundaries of the Downtown Parking and Business Improvement District as the definition of the Downtown area. Neighborhoods Figure 3-7 shows Grass Valley's "neighborhoods", a combination of identifiable historic districts and modern developments. The 2020 General Plan supports the concept of neighborhood identification, preservation, and enhancement. Neighborhoods are to be the basis for appropriate types of planning, facilities, and services. It is understood that, in establishing neighborhoods boundaries, the City of Grass Valley must have considerable flexibility, and that the Neighborhoods map as shown in Figure 3-7 is only intended as a guide to establishing such boundaries. Land Use Goals and Objectives 1-LUG Promote balanced community growth and development in a planned and orderly way. 1-LUO Availability of sufficient building sites properly zoned to accommodate projected growth. 2-LUO Avoidance of future adverse environmental, public facilities and services impacts. 2-LUG Promote infill as an alternative to peripheral expansion where feasible. 3-LUO Reduction in the amount of land necessary to accommodate future growth. 4-LUO Reduction in environmental impacts associated with peripheral growth. 5-LUO Continued revitalization of central Grass Valley. 3-LUG In areas of new development, plan for a diversity of land uses and housing types, including mixed use developments. 6-LUO Reduction in congestion and travel time to acquire needed goods and services. 7-LUO Preservation of open space and unique property features. 8-LUO Provision of a full range of housing opportunities and types. 4-LUG Protect and enhance the character of established single family neighborhoods. 9-LUO Preservation of existing neighborhoods. 10-LUO Protection of present quality of life. 11-LUO Retention of historic structures and community character. 5-LUG Provide for a broad range of housing opportunities, including opportunities for low, moderate and middle income households. 12- LUO Designation of residential building sites sufficient in number and variety to meet projected demand. 13-LUO Provision of sufficient affordable housing units for those working in Grass Valley. 14-LUO Utilization of available programs to promote the construction of affordable housing. 6-LUG Promote a jobs/housing balance within the Grass Valley region in order to facilitate pleasant, convenient and enjoyable working conditions for residents, including opportunities for short home to work journeys. 15-LUO Reduction in the number of vehicle miles driven. 16-LUO An improved quality of life for those working in the Grass Valley Planning Area. 17-LUO Future employment opportunities as adults for today's youth in well paying local jobs. 7-LUG Create a healthy economic base for the community, including increasing employment opportunities through attraction of new and compatible industry and commerce, and through retention, promotion and expansion of existing businesses. 18-LUO Creation and retention of wealth in Grass Valley. 19-LUO Employment opportunities for present and future residents. 20-LUO An expanding local tax base. 21-LUO Creation of an economy conducive to quality growth and development. 8-LUG Create a sound fiscal environment for municipal government through land use planning and decision-making that ensures a positive return to the local community. 22-LUO A healthy City government and special districts. 23-LUO Adequately funded local government services. 24-LUO Ability to respond to new service demands and the needs of a changing population. 9-LUG Coordinate peripheral development with the County General Plan and appropriate entities currently providing services in the Planning Area. 25-LUO Optimization of service delivery and land use decision making. 26-LUO Avoidance of land use and inter-jurisdictional conflict. Land Use Policies 1-LUP Maintain a General Plan that reflects the needs of the total community, including residents, business and industry. 2-LUP Require adequate information when reviewing development proposals, including full environmental review and fiscal impact analyses, to assure minimization of environmental, public facilities and services impacts. 3-LUP Maintain standards for population density and building intensity for each land use category identified in the General Plan. 4-LUP Identify areas appropriate for infill development and show them on the Land Use Diagram. 5-LUP Actively market infill and available parcels during contacts with developers and community members. 6-LUP Develop a more specific development strategy for identified infill parcels following General Plan adoption. 7-LUP Utilize California Redevelopment Law to provide incentives to infill development. 8-LUP Encourage and facilitate mixed-use developments on infill sites. 9-LUP Provide for higher residential densities on infill sites and in the Downtown area. 10-LUP Annex properties within the Grass Valley Planning Area prior to or in conjunction with their development. 11-LUP Where feasible, treat newly developing areas as Planned Developments. 12-LUP Permit increases in residential density (clustering) on portions of development sites while maintaining overall density. 13-LUP Encourage convenience goods and services opportunities to be incorporated into any significant development proposal. 14-LUP Encourage incorporation of multiple family development in new development areas while maintaining high design standards. 15-LUP Identify established neighborhoods and show them on the Land Use Diagram. 16-LUP Maintain zoning that promotes protection of existing single family residential areas from inappropriate encroachments. 17-LUP Utilize California Redevelopment Law, where appropriate, to enhance older neighborhoods and protect them from blighting influences. 18-LUP Maintain an active code enforcement program. 19-LUP Provide for a workable number of neighborhood planning/improvement areas, using the General Plan Neighborhoods map as a guide. 20-LUP Avoid circulation improvements that bisect or adversely impact established neighborhoods. 21-LUP Provide for secondary housing units on single-family residential lots. 22-LUP Assure that a sufficient number of sites are zoned for multiple family use. 23-LUP Encourage mixed use developments incorporating a variety of densities on infill sites and in areas proposed for annexation. 24-LUP On large parcels, encourage clustering of residential units on the most developable portions of the site in order to reduce infrastructure and other housing-related construction costs. 25-LUP Utilize clustering and other land use techniques to protect environmentally sensitive resources, such as heritage trees and wetlands. 26-LUP In partnership with housing developers, consider use of Community Development Block Grant funds, redevelopment funds and other funding programs that may become available from time-to-time to reduce the cost of housing for low and moderate income families. 27-LUP Establish a record keeping system enabling the number of jobs created to be correlated with the number of available housing units by type within the Grass Valley Planning Area. 28-LUP Promote the construction of affordable housing utilizing the techniques and approaches described in this General Plan. 29-LUP Promote the establishment and expansion of businesses and industries offering professional, light manufacturing and technical employment opportunities related to existing and developing forms of technology. 30-LUP Encourage mixed use developments on larger parcels in newly developing areas incorporating jobs generating businesses and industry housing. 31-LUP Promote primary jobs and core employment opportunities; those that export goods while importing capital. 32-LUP Encourage development of state of the art telecommunications infrastructure to attract new employers and serve the needs of the telecommuter. 33-LUP Promote Downtown as a hub for area cultural, entertainment and retail development. 34-LUP Prepare and provide a local economic information profile to prospective new businesses. 35-LUP Recognize the importance of and encourage home-based businesses that do not conflict with the character of established neighborhoods. 36-LUP Establish and utilize methods for assessing the fiscal impacts of land use-related projects under consideration by the Planning Commission and/or City Council. 37-LUP Assure that new development pays its fair share of the cost of municipal services. 38-LUP Consider use of special assessments to pay for unique service demands. 39-LUP Assure that acceptable inter-agency agreements regarding future service and facility provision are in place prior to approval of any major new development. 40-LUP Refer all development proposals to potentially affected governmental entities for review and comment. 41-LUP Request and respond to referrals from Nevada County concerning pending land use decisions within the Grass Valley Planning Area. 42-LUP Cooperate with Nevada County to prepare a hillside/slope ordinance to regulate uniformity and appropriately develop density and intensity. 43-LUP Establish and maintain a clear boundary between the City of Grass Valley and unincorporated areas of Nevada County, beyond which urban land use types and densities will not be permitted. 44-LUP Encourage the application of City standards throughout the City's Sphere of Influence. Land Use Implementation Actions and Strategies 1-LUI Revise the zoning map to reflect new General Plan designations. 2-LUI Revise zoning text to reflect General Plan changes, including density/intensity standards for zoning districts 3-LUI Review development regulations to assure adequate project information is submitted to adequately assess and mitigate environmental and fiscal impacts. 4-LUI Establish and maintain a data base containing information needed to determine the City's jobs-housing balance. 5-LUI Review redevelopment and revitalization programs and activities, and adjust plans to meet the goals, objectives, and policies of the General Plan. 6-LUI Review housing code enforcement practices, and adjust as needed to meet the goals, objectives, and policies of the General Plan. 7-LUI Establish a neighborhood-level planning/improvement program, to be the basis for neighborhood-level service and facility planning and citizen participation in neighborhood-level decision-making. Identify and delineate neighborhoods in a pattern appropriate to neighborhood-level planning and improvement, using the General Plan Neighborhoods map as guide. 8-LUI Coordinate with LAFCo, Nevada County, and other agencies and special districts regarding provisions of this General Plan, application of General Plan provisions in unincorporated portions of the Planning Area, and the timing and directions of future annexations. 9-LUI Establish standard processes and procedures for planning, annexation, and service provision in the unincorporated Planning Area. 10-LUI Establish uniform procedures and planning requirements for SDA-designated areas. 11-LUI Review service provision/extension plans, policies, and procedures to assure compatibility with the General Plan.