Planning Commission Staff Report January 21, 2016 Project: 2015-2020 Capital Improvement Program Revisions Request: Finding of Consistency with General Plan Location: Citywide APN: Various Staff: Christopher Jordan, AICP, Assistant to the City Manager Rick Carter, PE, Capital Program Manager

Staff Recommendation Staff recommends the Planning Commission adopt a Resolution:

1. Finding that the determination of General Plan consistency for the 2015-20 Capital Improvement Program Revisions is exempt from the California Environmental Quality Act (CEQA) pursuant to State CEQA Guidelines Sections 15060(c)(3), 15061(b)(3), and 15378 and Public Resources Code Section 21065; and

2. Determining the 2015-2020 Capital Improvement Program Revisions are consistent with the City’s General Plan.

Background The City of Elk Grove’s CIP is a five-year program (starting in Fiscal Year 2015/16 and ending in Fiscal Year 2019/20). It has two primary purposes: 1) the CIP describes transportation, drainage, and facility capital improvements planned by the City; and 2) it sets forth a funding strategy for their implementation. State law (Government Code Sections 65103(c) and 65401 requires the City’s planning agency (the Planning Commission) to review and report on proposed CIP projects for conformity with the General Plan. The Planning Commission’s review for General Plan conformance shall be forwarded to the City Council for consideration during its review of the CIP mid-year revisions. Because the Planning Commission’s review is for the consistency of the projects with the General Plan, the project descriptions are attached. On May 7, 2015 the Planning Commission deemed the projects in the current CIP consistent with the City’s General Plan. On December 9, 2015, the City Council directed staff to proceed with development of the Old Town Plaza Project (Project) as described in Attachments 2 and 3. In order to continue preliminary work necessary to submit to the Council for consideration, on this Project it must be added to the City’s CIP as part of the upcoming mid-year budget revisions. The first step in this process is Planning Commission review and report on General Plan conformity. At a future meeting, the Project will be agendized for a Design Review recommendation to the City Council, as required by Elk Grove Municipal Code Section 23.16.080 (Design Review). The Project is divided into three phases due to financial constraints. Analysis The proposed Old Town Plaza Project would create a multi-use plaza that is inviting and reminiscent of the history of Old Town. The design would likely incorporate features that reference the historical train depot that once occupied the site, while providing modern

1

Elk Grove Planning Commission 2015-2020 Capital Improvement Program Revisions January 21, 2016 Page 2 amenities for daily use and special events (Attachment 3). For CIP purposes, the Project has been divided into three phases. Staff has completed an initial analysis of the Project for consistency with the General Plan. The site is identified Light Industrial in the General Plan with a zoning of Old Town Special Planning Area (OTSPA). The OTSPA identifies the site for Commercial. Public plazas may be consistent with commercially-designated areas, as evidenced in the allowed use listings of Table 23.27-1 of the Title 23 (Zoning) of the City’s Municipal Code, which allows plazas by right in LC and GC zoning districts. However, there appears to be an inconsistency between the General Plan and the OTSPA that will need to be investigated further prior to the consideration of approval of the required Design Review for the Project and the start of construction. That said, the General Plan does contain goals and policies supporting the development of public outdoor spaces and the enhancement of the Old Town Area, which is what the proposed Project will accomplish. Specifically, the following are applicable to the Project:

Goal 1: A High Quality of Life for All Residents Focused Goal 1-2: Outdoor Recreation Opportunities for all residents PTO-1: The City of Elk Grove supports the development, maintenance, and enhancement of parks and trails serving a variety of needs at the neighborhood, area, and citywide level. The City may seek to accomplish the provision of parks and trails in cooperation with the Cosumnes Community Services District (CCSD). Focused Goal 1-8: Creation and maintenance of a strong, positive community image for Elk Grove ED-12: Promote a thriving local retail, personal, and business services sector. ED-12-Action 1: Actively promote revitalization and strong sales in Old Town Elk Grove, and along major commercial thoroughfares. HR-5: Maintain and improve the aesthetic quality and architectural diversity of the Old Town historic district.

Environmental Analysis The California Environmental Quality Act (CEQA, Section 21000, et seq. of the California Public Resources Code), requires that the potential impacts of projects that will have a physical impact on the environment be analyzed prior to their construction. State CEQA Guidelines Sections 15060(c)(3), 15061(b)(3), and 15378 and Public Resources Code Section 21065 exempts projects that have no potential for causing a significant effect on the environment. Where it can be seen with certainty that there is no possibility that the activity in question may have a significant effect on the environment, the activity is not subject to CEQA. The Planning Commission’s action involves determining the consistency of the proposed revision to the 2015-20 Capital Improvement Program with the City’s General Plan. It does not directly authorize the construction of the project enumerated in the listing. Therefore, the determination of consistency will not have a direct effect on the environment. As such, the potential action qualifies for this exemption and no further environmental review is required.

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Elk Grove Planning Commission 2015-2020 Capital Improvement Program Revisions January 21, 2016 Page 3 Summary The Planning Commission is required to review the revisions to the 2015-2020 Capital Improvement Program (CIP) specifically to determine consistency with the General Plan. Staff recommends that the revisions to the 2015-20 CIP are consistent with the City’s General Plan. Recommended Motions Should the Planning Commission agree with staff’s recommendation, the following motion is suggested:

”I move that the Planning Commission adopt a Resolution finding the 2015-20 Capital Improvement Program revisions exempt from the California Environmental Quality Act pursuant to the findings contained in the draft resolution and deem the 2015-20 Capital Improvement Program revisions consistent with the City of Elk Grove’s General Plan based upon the analysis presented in the January 21, 2016 staff report packet.”

Attachments 1. Draft Planning Commission Resolution

Exhibit A - Capital Improvement Projects and Related General Plan Policies - 2015-20 CIP Mid-Year Revisions

2. December 9, 2015 City Council report 3. Old Town Plaza Conceptual Site Plan

3

RESOLUTION NO. 2016- JANUARY 21, 2016

A RESOLUTION OF THE CITY OF ELK GROVE PLANNING COMMISSION DEEMING THE 2015-20 CAPITAL IMPROVEMENT PROGRAM REVISIONS

EXEMPT FROM CEQA AND CONSISTENT WITH THE CITY OF ELK GROVE’S GENERAL PLAN

WHEREAS, the proposed 2015-20 Capital Improvement Program (the CIP) includes capital projects in various locations throughout the City of Elk Grove; and

WHEREAS, Sections 65103(c) and 65401 of the California Government Code requires that the Planning Agency of the City review and report on proposed CIP projects for conformity with the General Plan; and

WHEREAS, the Planning Commission of the City of Elk Grove is the Planning Agency for the City; and

WHEREAS, the Planning Commission considered all of the information presented by staff and public testimony presented in writing and at its January 21, 2016 meeting and reviewed the proposed 2015-20 CIP revisions and related General Plan policies.

NOW, THEREFORE, BE IT RESOLVED, that the Planning Commission of the City of Elk Grove finds that the determination of General Plan consistency for the 2015-20 Capital Improvement Program Revisions is exempt from the California Environmental Quality Act (CEQA, Section 21000, et seq. of the California Public Resources Code) because the action is not a project under CEQA pursuant to the following finding:

Finding: The proposed activity is not subject to CEQA because it is not a “project,” pursuant Section 15060(c)(3), 15061(b)(3), and 15378 of the State CEQA Guidelines (Title 14 of the California Code of Regulations) and Public Resources Code Section 21065.

Evidence: State CEQA Guidelines Sections 15060(c)(3), 15061(b)(3), and 15378 and Public Resources Code Section 21065 exempts projects that have no potential for causing a significant effect on the environment. Where it can be seen with certainty that there is no possibility that the activity in question may have a significant effect on the environment, the activity is not subject to CEQA. The Planning Commission’s action involves determining the consistency of the proposed revision to the 2015-20 Capital Improvement Program with the City’s General Plan. It does not directly authorize the construction of the project enumerated in the listing. Therefore, the determination of consistency will not have a direct effect on the environment. As such, the potential action qualifies for this exemption and no further environmental review is required.

4

Planning Commission Resolution – Resolution 2016-XX January 21, 2016 2015-20 CAPITAL IMPROVEMENT PROGRAM REVISIONS Page 2 of 5

AND, BE IT FURTHER RESOLVED that the Planning Commission hereby determines that the proposed 2015-20 Capital Improvement Program Revisions are consistent with the City’s General Plan based upon the analysis presented in Exhibit A.

The foregoing Resolution of the City of Elk Grove was passed and adopted by the Planning Commission on the 21st day of January 2016, by the following vote:

AYES: NOES: ABSENT: ABSTAIN:

ATTEST:

Sandy Kyles, George Murphey, CHAIR of the PLANNING SECRETARY PLANNING COMMISSION

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AGENDA ITEM NO. 10.4

CITY OF ELK GROVE CITY COUNCIL STAFF REPORT

AGENDA TITLE: Receive an update on the Railroad Street

Property and provide direction on next steps MEETING DATE: December 9, 2015 PREPARED BY: Pam Johns, Special Projects Planner DEPARTMENT HEAD: Darren Wilson, PE, Development Services

Director RECOMMENDED ACTION: Consider the results of recent outreach efforts for the Railroad Street property and provide direction to staff to proceed with next steps. BACKGROUND INFORMATION: On October 26, 2012, the City purchased the Railroad Street property (Property) from Union Pacific Railroad for $837,889. The purchase included a deed restriction that prohibits residential use, day care use, and depots on the site. The deed restriction also designates a “no build” area in the triangular section in the northwest corner of the property between the railroad tracks and Railroad Street. The Council agreed that the property would be ideal for public use as a plaza; however, there was some concern about additional costs incurred by the City through such use. The Council agreed to return to a discussion on how to develop and utilize the Property after the purchase was complete. Since the purchase, the City has conducted numerous public outreach activities to gather public feedback on the use and possible development of the Property. This has included a workshop in conjunction with the Sacramento Area Council of Governments (SACOG) and the Urban Sustainability Accelerator at Portland State University (PSU USA); a citywide mail-in survey through the International City/County Management

9

Elk Grove City Council December 9, 2015 Page 2 of 8 Association and the National Research Center; and stakeholder interviews with members of community organizations, adjacent property and business owners, and developers. Community input from stakeholder interviews found consensus that a public plaza of some kind was desired on the northern portion of the site to accommodate community uses, such as Food Truck Mania and the Chili Festival. Some envisioned that the space could be used for a farmers’ market, community festivals, and fairs with temporary vendors. Many suggested that a stage would be well suited for the plaza, which could support events and help attract more visitors to Old Town. Regional infill developers agreed that the most valuable section of the property is the frontage along Elk Grove Boulevard, which would be a natural fit for retail and/or mixed-use development. Developers generally supported the idea of a community gathering space, but were concerned that it would be difficult to develop and maintain without considerable City incentives. On June 24, 2015, after hearing the results of stakeholder outreach and reviewing a conceptual site plan, the Council directed staff to develop the northern portion of the Property as public space (Plaza) and to proceed with conducting additional community outreach to explore design options (Attachment 1). COMMUNITY INPUT: Workshop Overview On September 2, 2015, the City hosted a pop-up workshop at the Food Truck Mania event located on the Property. Of the approximately 500 attendees at the event, 115 (107 Elk Grove residents and 8 visitors) participated in the Railroad Property Pop-Up Workshop. To solicit input from participants on how the Plaza might be designed for future use, participants were asked to choose their preferred site configuration from the following three options, considering that any future site design would include basic elements like walkways, seating, public restrooms, landscaping and trees, bicycle parking, public art, and wayfinding signs:

10

Elk Grove City Council December 9, 2015 Page 3 of 8

A. Stage B. Pavilion C. Flexible Parking Space

Participants were also asked to indicate their preferences for additional features across five categories (seating, green space, water feature, activities, and transit amenities). Site Configuration Preferences Most attendees preferred site configuration Option B, which would feature a pavilion on the site (65%). The second most popular configuration was Option C – flex space, at 21%. Only 12% of participants preferred Option A – stage, and 2% of workshop participants preferred to see something else on the site besides the three options presented. These results are shown in the table below: Top Design features # of Residents # of Visitors % of Votes Pavilion 72 3 65% Flex Space 22 2 21% Stage 11 3 12% Prefer Something Else 2 0 2%

Several community members suggested combining Options A and B to incorporate a stage into the pavilion design. Additional Design Features The most popular design features by category (seating, green space, water feature, transit amenities) were:

• Seating – Amphitheater (11%) • Green Space - Open Lawn (11%) • Water Feature - Splash Pad (10%) • Transit Amenities - Bicycle Racks (10%) • Activities – Playground (7%)

The top six design features overall (in any category) were:

• Amphitheater – 48 votes • Open lawn – 48 votes • Splash pad – 42 votes

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Elk Grove City Council December 9, 2015 Page 4 of 8

• Bicycle racks – 41 votes • Flower/learning garden – 33 votes • Fountain – 32 votes

Additional Ideas In addition to the structured feedback activities, participants were invited to add additional ideas on a large notepad. Based on comments from workshop attendees, there appears to be agreement that the site should:

• Maintain sufficient open space (so as to accommodate existing events and be flexible to future programming)

• Be pedestrian-focused and close to Elk Grove Boulevard • Include sufficient trees and shade structures

Other common requests were to reduce the amount of concrete on the site, add a sound wall, and increase parking. Additionally, two hand-delivered letters were received from community members outlining unique proposals for the use of the space. One of the proposals was to maintain the existing historic railroad tracks for educational and recreational purposes using a vintage rail motorcar. The second hand-delivered proposal argues in favor of building a Japanese water garden on the site. This proposal included approximately 500 signatures collected from community members in support of this concept. Images of the populated workshop posters, photos from the event, a transcription of attendee comments, and letters received from the public are included as Attachment 2. CONCEPTUAL SITE PLAN: Based upon previous Council direction and the feedback received at the September 2015 Pop-Up Workshop, staff has developed the conceptual site plan provided in Attachment 3. The conceptual site design imagines a multi-use plaza that is pleasant, inviting, and reminiscent of the history of Old Town. The design incorporates features that reference the historical train depot that once occupied the site, while providing modern amenities for daily use and special events.

12

Elk Grove City Council December 9, 2015 Page 5 of 8 The primary entrance to the site is at the northern end of the site on Elk Grove Boulevard. It features a semicircle of seats and picnic benches below a trellis with a lily pond at the center. A lawn, shade trees, restroom, and a community information board are also included. From the sidewalk at Elk Grove Boulevard, a walkway connects through the center of the semicircle to an L-shaped pavilion, which is surrounded by both grass and concrete pavers. The pavilion is a large covered structure (approximately 9,000 square feet) with open sides and incorporates a raised platform at the northern end and a restroom at the southern end. The southern end of the site provides two entrances for food trucks and other vendors. The entire site is flanked by a sidewalk, galvanized planters, shade trees, and benches. Staff has identified intermittent regular users of the site, including a future farmers’ market and an existing food truck event. Examples of how these activities, as well as a performance event (e.g., concert), would operate in this space are included in Attachment 3. Phased Improvements The full cost of these improvements exceeds the City’s funding ability today. However, some initial improvements are needed in the near-term to make the site function better for existing uses and the possible addition of a farmers’ market. Therefore, staff proposes a set of initial, basic site improvements that would contribute incrementally toward final buildout. A total of three phases are proposed as follows; these phases are illustrated in Attachment 4. Phase I: Initial Improvements (Completion by December 2016) The first phase would make the site a more user-friendly space for existing uses, such as Food Truck Mania, and future uses, such as a farmers’ market. Proposed improvements include:

• Build a permanent restroom that is easily accessible from Elk Grove Boulevard, including water and sewer lines;

• Build a new concrete walkway for ADA accessibility; • Remove the existing planter in order to connect the walkway to the

sidewalk; • Level the existing surfacing in the plaza, allowing for improved use of

the site by pedestrians and use as an interim parking lot until the Phase III improvements are completed.

13

Elk Grove City Council December 9, 2015 Page 6 of 8

• Remove the existing dilapidated fencing and replace it with galvanized planters (to be relocated in Phases II and III). The Old Town Foundation will donate the galvanized planters.

Phase II: Improved Elk Grove Boulevard Frontage The second phase would further build out the site to create a more inviting environment for regular daily use along Elk Grove Boulevard. Proposed improvements include:

• Heavy timber trellis and concrete seat wall • Tables and benches • Decomposed granite bike parking area and bike racks • Enhanced pavement at sidewalk and trellis seating areas • Landscape planters • Landscaping and landscape wall • Site and accent lighting • Signage at trellis and seat wall

Phase III: Complete Buildout The final phase would complete full buildout of the site in order to create a lasting plaza for ongoing programmed and daily uses by the community. Site design features are inspired by the historical use of the site as a train depot:

• Relocate galvanized planters to final location along Railroad and Grove Streets

• Build the interior improvements, including: o Concrete seat walls o Pavilion structure with restroom and storage o Permeable stone pavers at southern end o Grasscrete pavers with turf for lawn area and parking for food

trucks o Planters and entry bollards o Additional bench seating o Additional site lighting

• Construct offsite improvements and widen Railroad Street and Grove Street at street frontage of plaza and parking sites

• New parking lot improvements at adjacent south lot with asphalt, landscape planters, site lighting

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Elk Grove City Council December 9, 2015 Page 7 of 8 NEXT STEPS: Staff seeks Council confirmation that the presented design is appropriate for the Railroad Street property, or otherwise direct changes as necessary. Once that is provided, staff requests direction to proceed with the following next steps:

1. Return at a future meeting with an amendment to the Capital Improvement Program to include the Railroad Street Property on the Capital Improvements Project List and amend the 2015-16 Budget as necessary to fund the Phase I improvements;

2. Complete the required Design Review Entitlements and Environmental Review (CEQA); and

3. Accommodate Phases II and III of the Project in future fiscal year budgets as funding is available.

Staff anticipates returning in February with Items 1 and 2. If the funds are made available at that time, it is expected that Phase I would be completed by December 2016. FISCAL IMPACT: The conceptual design phase of this Project was included in the Fiscal Year 2015-16 Planning Department Special Projects budget. Funding for the Phase 1 portion of the Project has been identified as shown in the table below and would not impact current fiscal year operations. Funding for the subsequent phases of the Project would be identified as part of the 2016-17 budget and 2016-2021 Capital Improvement Program. There are a few potential grant funding options for subsequent phases, including but not limited to HCD Housing-Related Parks Program, SACOG Community Design Program, SGC Affordable Housing and Sustainable Communities Program, CA Parks and Recreation Outdoor Recreation Legacy Partnership Program, and HUD Community Development Block Grants.

15

Elk Grove City Council December 9, 2015 Page 8 of 8

PHASE COST ESTIMATE PROPOSED FUNDING SOURCE

Phase I $550,000 $295,000 (Housing-Related Parks Program Grant) $255,000 (General Fund Reserve)

Phase II $1,000,000 Unfunded Phase III $8,100,000 Unfunded Staff proposes pursuing partnerships with local community-based organizations for voluntary site maintenance of the planters and other site features that would be constructed in Phase I. All other maintenance obligations would continue to be funded by the City as part of the annual budget. ATTACHMENTS:

1. June 24, 2015 City Council meeting materials 2. Pop-Up Workshop Summary Report – October 2015 3. Conceptual Site Plan and Exhibits 4. Project Phasing

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