HomeMy WebLinkAbout2012-11-14 Packet - SpecialCITY OF UKIAH
CITY COUNCIL AGENDA
Special Meeting
Civic Center Council Chambers
300 Seminary Avenue
Ukiah, CA 95482
November 14, 2012
6:00 p.m.
General Plan Workshop
1, ROLL CALL
2. WORK STUDY SESSION
a. Discuss And Provide Direction Concerning The Interpretation Of General Plan Goals
b. Strategic Planning Discussion
3. PUBLIC COMMENT
4. ADJOURNMENT
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public inspection at the front counter at the Ukiah Civic Center, 300 Seminary Avenue, Ukiah, CA 95482, during normal business
hours, Monday through Thursday, 7:30 am to 5:00 pm
I hereby certify under penalty of perjury under the laws of the State of California that the foregoing agenda was posted on the
bulletin board at the main entrance of the City of Ukiah City Hall, located at 300 Seminary Avenue, Ukiah, California, not less than
24 hours prior to the meeting set forth on this agenda.
Dated
this 8th
day
of November, 2012
Linda
Brown,
City
Clerk
ITEM NO.: 2a
MEETING DATE November 14, 2012
C'ily
AGENDA SUMMARY REPORT
SUBJECT: DISCUSS AND PROVIDE DIRECTION CONCERNING THE
INTERPRETATION OF GENERAL PLAN GOALS
SUMMARY: During recent City Council, Planning Commission, and Zoning Administrator
decision making on planning permit applications, there have been different opinions about the
meaning of certain General Plan goals. This agenda item is seeking guidance on a number of
issues affecting local economic development and the balancing of downtown revitalization with
business development citywide.
The issues that staff seeks guidance upon are:
1. Confirmation that bundling the General Plan Goals with the underlying findings, policies
and implementation measures is the proper method for interpreting the Goals.
2. The past Planning Commission and City Council practice of interpreting Goal ED-1
"Support a Local Economy" has been to support all new businesses citywide. Should
this practice continue?
3. It has been suggested by some members of the public that detailed economic impact
information should be required for new businesses as part of the review and decision
making process to determine if new businesses would adversely impact existing
businesses. Should this information be required? if so, should it be required for all new
businesses, certain types of businesses and/or certain sized businesses? What
information should be required?
4. When is new business competition acceptable and when is it not? If there is evidence
that sales at an existing business are weak and additional competition could put it out of
business, would that competition be unacceptable? If the competition would reduce
Continued on Page 2
Recommended Action(s): 1) Discuss and provide direction to staff concerning the
.interpretation of General Plan- Goals.
Alternative Council Option(s): 1) Provide alternative direction to Staff.
Citizens advised:
Requested by: Charley Stump, Director of Planning and Community Development
Prepared by: Charley Stump, Director of Planning and Community Development and
David Rapport, City Attorney
Coordinated with: Jane Chambers, City Manager and David Rapport, City Attorney
Attachments: 1)1993 Overall Economic Development Strategy
2)Downtown Revitalization Master Plan
Approved: --,/
n hambers—,-C—ity Manager
e�
revenues of an existing business, but not cause it to go out of business, would that
competition be acceptable?
DISCUSSION: General Plan goals are broad statements that provide the blueprint for the
future of the community. As indicated in the General Plan, they are the product of the Findings
contained in the Plan which represent the thought process and reasoning to understand why a
particular goal was proposed and adopted.
The General Plan also indicates that each goal is further defined by Policies and
Implementation Measures. Accordingly, it is necessary to review the General Plan Findings and
underlying Policies and Implementation Measures to provide context and an understanding of
the meaning of each goal. The following is an excerpt from the General Plan:
Within each chapter of the General Plan, the elements are divided into sections by issues addressed
within the element. Within the issues, there are two sections: Summary of major findings, and General
Plan goals, policies, and implementing program. These two sections contain important information critical
to understanding the General Plan's contents.
The "Summary of Major Findings" section briefly explains the reasons behind the decisions that
make the goals important. Sometimes the Summary contains factual data either because it is required by
law or needed to support the reasons. Many times, the information in the summary represents the beliefs
of the citizens participating in the process.
The "General Plan goals, policies, and implementing program" section contain the programs that will
put the General Plan into effect. This section forms the Plan action program and is the direction that the
City must follow once the Element is adopted. To understand what is meant by each, the following
explanations are used in the General Plan as a consistent definition of the words.
Findings. Findings are the reasons that a recommendation is being presented as a goal. A finding
represents the thought process, the reasoning, and any relevant supporting factual evidence that
provide a means for a reader of the General Plan to understand why a particular goal is proposed.
Findings are presented as "summaries of major findings" within the Plan.
Goals. —Goal are 15-ro-ad statements at provide a luepnm foe t tie ture. eb goa esta ashes what
the City desires to accomplish over the life of the Element. Goals are what the community desires
to achieve.
Policies. Each goal is further defined by City Council policies. The policies provide direction to Staff,
the public, and future councils as to how each project is to be reviewed under the provisions of the
Element. A policy breaks the goal into achievable segments.
Implementation measures. In order to put the Element into day -to -day effect, implementation measures
are adopted to provide guidance in reviewing projects and to define standards which are to be
achieved. For the most part, implementation measures are time specific or measurable standards.
Time specific implementing measures tell the Council that a certain action is to be accomplished at
a specific time. This assists in settling budgets for City Departments (such as the Roads Department
or Planning Department). Measurable implementation measures tell Staff which standards of review
are to be used on an ongoing basis when assessing a project for approval.
Need for City Council Guidance on Interpretation of General Plan.
In rejecting the Wal -Mart application for a site development permit to expand its existing store
by 50,000 square feet, the Planning Commission found that the project was inconsistent with
General Plan Goal ED -1 — "Support a Strong Local Economy." In evaluating whether the Wal-
Mart expansion was consistent with this policy, the Planning Commission relied on its long-
standing interpretation of the goal. The City Council has not had an opportunity to review the
Planning Commission's interpretation of this General Plan policy, because the projects in which
it has applied the policy, including the Wal -Mart Project, were not appealed to the City Council.
In finding the Wal -Mart project inconsistent with GP Goal ED -1, the Planning Commission
found, among other things, that expanding Wal -Mart to include a supermarket would compete
with Safeway, Lucky, Raley's, FoodMaxx, Grocery Outlet, Chavez Market and Ukiah Natural
Foods, would divert substantial sales from these existing businesses and could result in one or
more of these stores closing. It found that diverting sales from existing business does not
support a strong local economy. It also found that food sales competition from Wal -Mart could
result in the loss of up to 167 jobs in existing supermarkets, but Wal -Mart would create only 85
new jobs, and that the closing of FoodMaxx or Lucky would result in the loss of jobs that pay
higher wages with medical and dental benefits than are paid by Wal -Mart. It found that these
potential impacts from competition by Wal -Mart did not support a strong local economy.
Staff believes that the City Council should review this GOAL and provide guidance to the
Planning Commission and staff, regarding how the existing General Plan goal should be
interpreted. The following discussion is intended to provide the City Council with background
information on the interpretation of a General Plan Goal.
Determining What a General Plan Goal Means:
The following discussion provides an example of the Goal interpretation process understood by
staff. It identifies a Goal, the findings leading to the Goal, and the Policy and Implementation
Measures defining the Goal.
Goal ED -1 — "Support a Strong Local Economy" is broad statement that can be interpreted in
different ways. Does it mean that the City should only support locally owned businesses or
does it does it mean the City should support all businesses located within the City? Does it
mean that the City should not support big box retailers that would directly compete with locally
owned businesses?
As shown in the General Plan text excerpt, the way to interpret the goal is to review the Findings
that led to it and the policies and Implementation measures that define it.
Findings: These findings discuss the community's desire for more and better jobs while
retaining a small town; attracting businesses from outside the area; attracting manufacturing
businesses, particularly those that use local resources; and the need to balance the dollars
generated by creating products within the region which are sold elsewhere and the dollars spent
on products produced elsewhere and sold in the Valley.
Policy: The Policy under Goal ED -1 states "Take steps to reinforce the Valley's economy"
Implementation Measures: The following Implementation Measures beneath this Policy provide
direction as to what steps are to be taken to be consistent with the Policy and to reach and fulfill
the Goal:
Implementation Measure ED- 1.1(a): Maintain and keep current the Economic Development
Strategy designed to meet the Valley's vision and needs.
Implementation Measure ED- 1.1(b): Continue to carry out the Redevelopment Plan for the City.
Implementation Measure ED- 1.1(c): Continue to carry out the Downtown Master Plan for the
City.
Implementation Measure ED- 1.1(d): Continue to carry out the Economic Development Strategy
as adopted by the City.
Implementation Measure ED- 1.1(e): Provide a City- County coordinated effort to encourage
expansion of agricultural opportunities to diversify the Valley's economic base.
According to the Implementation measures under Goal ED -1, future projects would support the
local economy if they did not preclude the City from carrying out its Redevelopment Plan,
Downtown Master Plan and Economic Development Strategy or conflict with the expansion of
agricultural opportunities. Accordingly, the next step would be to evaluate these
plans /strategies and determine if a proposed project would preclude the City from carrying them
out.
Downtown Revitalization Master Plan: The Downtown Revitalization Master Plan contains
findings, recommendations and implementing projects for improving the downtown. These
include street and utility improvements, dealing with unreinforced masonry buildings, allowing
residential mixed uses, improving parking, restoring creeks, and other improvement projects
specific to the downtown. A future project that conflicted with these implementation measures
and planned improvements could be regarded as conflicting with the City's ability to carry out
the Downtown Master Plan.
Redevelopment Plan: The City no longer has a Redevelopment Agency and it is questionable
whether or not the Agency's Redevelopment Plan is still a working document. If the Plan is still
considered to be a working document, a future project could be inconsistent with it if the project
conflicted with the following Redevelopment Plan's goals and objectives:
1. Eliminate and prevent the conditions which lead to the spread of blight by providing the
renewal, redevelopment, and restoration of the Redevelopment Project Area.
2. Remove impediments to land disposition and development through the assemblage of
non - conforming or irregularly shaped parcels. Assemble parcels wherever appropriate in
order to provide an available industrial land bank or to complete public improvements.
3. Promote public safety and economic growth through an improved system of streets,
utilities, and public facilities.
4. Emphasize economic development opportunities and job growth in manufacturing and
technology sectors which generate jobs and promote business development.
5. Remove impediments to home ownership through the creation of jobs.
6. Plan, design, and develop areas which are currently stagnant or underutilized.
7. Provide opportunities for property owners in the rehabilitation of structures and the
development of properties.
8. Maintain downtown Ukiah's historic place as a regional center of civic and economic
activity through continued efforts to revitalize downtown and strengthen its position as a
viable retail district and the "heart" of our community.
9. Expand the community's supply of decent, safe, and affordable housing to persons and
families of lower and moderate income levels and encourage and enhance opportunities
for home ownership and elimination of homelessness in Ukiah.
10. Increase the use of alternative transportation modes within our community, and
downtown.
Economic Development Strategy: The Economic Development Strategy adopted in 1993 was
intended to be a framework and strategy to guide three principal economic development
activities: 1) business recruitment; 2) business retention and expansion; and 3) job training. It
was envisioned that when these three activities were successfully implemented, the economic
climate and quality of life in the Valley would be enhanced. A future project that interfered with
the City's ability to carry out these activities could be regarded as inconsistent with the
Economic Development Strategy.
Accordingly, future projects would support the local economy if they did not preclude the City
from carrying out its Redevelopment Plan, Downtown Master Plan and Economic Development
Strategy or conflict with the expansion of agricultural opportunities.
Goal ED -1 does not appear to mean that big box retail stores that compete with locally owned
shops do not help support a local economy and are inconsistent with the General Plan. This is
confirmed by the actions of prior City Councils. The same City Council that adopted the
Economic Development Strategy and General Plan subsequently approved non - locally owned
businesses such as Freidman Brothers, Kmart, Food - For -Less and others, which immediately
competed with both existing locally owned and non - locally owned businesses at the time.
Based on this decision making, it is clear that the intent of the economic development strategy
and Goal ED -1 was not to prohibit non - locally owned businesses from locating in the City and
competing with locally owned businesses.
Past Planning Commission and City Council Actions:
Past Planning Commissions and City Councils have attempted to balance the revitalization of
downtown with commercial development outside the downtown. The City has provided staff
and financial support to downtown revitalization efforts, such as the fagade and business
improvement programs for shops and stores, the State Street corridor improvement project,
State Street tree planting program, Downtown Zoning Code, and many others. At the same
time, the City, with ample public discussion created the Pear Tree Shopping Center and Airport
Business Park and opportunities for large retail stores, hotels, offices, and restaurants to
establish. The City has reviewed and approved large retailers outside the downtown that may
compete with some downtown businesses, but also provide goods and services that citizens
travel to Sonoma County to purchase. This balancing has not caused the downtown to become
deteriorated and blighted. In fact, there has been a recent increase in downtown activity and a
corresponding decrease in commercial vacancy space.
Moreover, recent information gathered for the Costco Administrative Draft Environmental Impact
Report comparing the 4th quarter of 2009 to the 4th quarter of 2011 reveals that Citywide, the
rentable building area vacancies dropped from 8.5% to 4.2 %. An argument could be made that
the balancing of downtown business revitalization efforts with the careful review and support for
businesses outside the downtown has been successful. This leads to the conclusion that goal
ED -1 was originally intended and subsequently interpreted to mean that the "local economy"
included all businesses in the City limits.
What's Changed?
There have been a number of recent actions that have changed the business landscape in
Ukiah. These recent actions could prompt a deeper discussion of the City's economic
development strategy as a means to adapt to change. One of the recent actions is the demise
of the Redevelopment Agency which provided significant support to downtown revitalization
and infrastructure supporting the business community. Another action is the change in business
models unknown to the City when it adopted its General Plan in 1995. For example, the
growing emergence of temporary stores, such as Halloween City and the Toys -R -Us Christmas
stores that only open during holiday seasons. This temporary store business model has created
concern among some members of the community.
Another change is the emergence of internet shopping, which has undoubtedly impacted "local"
retail businesses in the City and Valley.
Another change is the effort to partner with the County and others to attract new and /or expand
existing industrial and manufacturing businesses that typically pay higher wages than retail
businesses and that can spawn related and associated businesses and services. The definition
of "local" for these efforts includes the entire Ukiah Valley.
Another change is the evolution
retail /lodging /office complex.
recommendation to "emphasize
greatest existing industrial land
decisions were made with ampl
today.
of the Airport Business (Industrial) Park into predominantly a
The 1993 Economic Development Strategy included a
the development of the Airport Industrial park as the City's
base..." For various reasons, including market conditions,
e public discussion to allow the Park to evolve into what it is
CONCLUSION: The General Plan provides guidance as to how to interpret its goals. It is clear
that the underlying policies and implementation measures must be bundled with the goals to
provide context, reasoning and meaning.
In applying this analysis to ED -1 "Support a Local Economy," it appears to staff that the goal
was not created and has not been interpreted over the years by the City Council to mean that
only locally owned businesses can be permitted in the City or that locally owned businesses
should be protected from competition from new businesses seeking to locate in the City. On the
contrary, the City Council appears to have balanced downtown business revitalization efforts
with business growth outside the downtown. This approach has not caused the demise of the
downtown or a burden on businesses outside the downtown — business growth in the City, even
during the current economic struggles, has held its own. However, the Planning Commission
has interpreted GP Goal ED -1 to require an economic analysis of the impact of a new business
on existing businesses and on the job market.
RECOMMENDATION
1) Discuss and provide direction to staff concerning the interpretation of General Plan
Goals.
A achmen# #
CITY OF UKIAH
AND
UKIAH REDEVELOPMENT AGENCY
OVERALL ECONOMIC
DEVELOPMENT STRATEGY
Adopted by Resolution by City of Ukiah
and the Ukiah Redevelopment Agency
on February 3, 1993
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RESOLUTION NO, 934
RESOLUTION OF THE UKIAH REDEVELOPMENT AGENCY
ADOPTING THE CITY OF UKIAH
ECONOMIC DEVELOPMENT STRATEGY
WHEREAS, the Ukiah Redevelopment Agency has determined the City of Ukiah and
the Ukiah Redevelopment Agency shall initiate an Economic Development Program; and
WHEREAS, an Economic Development Element is being considered within the proposed
City of Ukiah Growth Management /General Plan; and
WHEREAS, the Economic Development Element Committee of the Growth
Management /General Plan has reconvened to author the City of Ukiah Economic Development
Strategy; and
WHEREAS, Community direction has been received and incorporated into the Strategy
through the work of the committee and additional public documents including the Proceedings
of the Mendocino County Economic Development Summit, Ukiah Economic Study completed
by William Kuebelbeck & Associates; and the Draft Element of the proposed General Plan; and
WHEREAS, the proposed City of Ukiah Economic Development Strategy meets the
goals and spirit set forth by the committee and the City Council,
NOW, THEREFORE, BE IT RESOLVED that the Ukiah Redevelopment Agency of
the City of Ukiah does hereby approve and adopt the City of Ukiah Economic Development
Strategy.
PASSED AND ADOPTED this 3rd day of February, 1993 by the following roll call
vote:
AYES: Commissioners Mastin, Malone,
NOES: None.
ABSENT: None.
ABSTAIN: None.
ATTEST:
Karen Yoast, AcUg Secretary
2:CM /ECORES2
Wattenburger, Shoemaker, and Chairman Schneiter
/ JV,lti ft
Fred Schneiter, Chairman
INTRODUCTION
This Overall Economic Development Strategy has been adopted by the City Council and Ukiah
Redevelopment Agency on February 3, 1993, for the purpose of concentrating and coordinating
our efforts, opportunities, and resources. This strategy is intended to be a continually evolving
framework and strategy to guide the three principal activities which include business recruitment,
business retention and expansion, and job training; which when successfully implemented, will
enhance the quality of life and economic well being of our community.
MISSION STATEMENT
The mission of the City of Ukiah's and Ukiah Redevelopment Agency's Overall Economic
Development effort is to foster and facilitate a broader based, ethnically diverse local economy
and create locally generated, sustainable resource based, manufacturing, and technologically
oriented service sector jobs.
OVERALL GOAL
- Attract or assist in the expansion of a minimum of three manufacturing based businesses per
year over the next five years which results, cumulatively, in the creation of at least 250 new
jobs to the Ukiah Valley,
PROGRAM GOALS
1. Recruitment and Development of New Business
Attract added value, sustained resource based, manufacturing businesses.
Attract businesses which complement our existing business mix and benefit our community.
Attract businesses which reflect and are compatible with our social and ecological community
values.
Assist new business start-ups and micro business development within the local community.
Attract businesses and industries which will generate local jobs and which demonstrate a
direct economic benefit to the community.
Attract businesses that generate new jobs which provide living wages.
2. Business Retention and Expansion
Recognize the regional context of the Ukiah Valley and integrate the City's values into county
and regional economic development plans.
Promote cooperative efforts of local businesses in the area and create an effective business
"community."
Assist business people in understanding their neighbors' success is also their success.
- Assist local businesses through capital access and business counseling programs to expand and
create jobs locally.
- Recognize, include and encourage businesses which emphasize Ukiah's ethnic diversity.
- Assist local industries and businesses to develop national and international trade markets for
locally produced goods.
3. Job Training
- Coordinate better communications and efforts between the various local job training
facilitators.
- Seek financial assistance, whenever possible, through the various state and federal job training
programs.
- Continually assess and provide for the needs of our ever changing labor pool.
- Develop programs which emphasize and utilize internships, apprenticeships, and mentoring
activities which integrate youth into all aspects of job training and economic development.
- Develop job training programs which emphasize cultural diversity and minimize linguistic
barriers.
DIRECTIVES
Recommended Actions for Business Recruitment
1. Establish a range of potential incentives to manufacturing based firms which add value to
local products and create jobs. Incentive packages which include financial assistance should
be based upon the degree and quality of locally generated jobs. Specific incentives may
include, but should not be limited to: off -site infrastructure improvements; low interest
loans; relocation and lease assistance; utility deferrals; and job training assistance.
2. City participate in all county - wide and regional economic development planning efforts such
as the development of Mendocino County's Overall Economic Development Plan.
3. A strong effort will be made through the Greater Ukiah Chamber of Commerce to increase
destination tourism activities in the area. Tourism should not form the cornerstone of the
City's Economic Development Program, however, the variety of natural amenities and
attractions existing in the area make "packaging" of activities an outstanding possibility.
The Chamber of Commerce shall be encouraged to spearhead an aggressive marketing
campaign in this area.
4. Encourage the location of corporate and administrative offices of targeted manufacturing
companies to the City of Ukiah. In addition, companies who bring their entire operation
to Ukiah are more likely to have a stronger commitment to the community in terms of
environmental preservation and the development of public facilities. As a county seat, the
City of Ukiah offers an exceptional level of professional and legal services and the
exceptional quality of life and relatively low -cost housing in the Ukiah area provide a stronLy
q
6. Emphasize the development of the Airport Industrial Park as the City's greatest existing
industrial land base and assess the possibility for the creation of other business parks within
the city limits. The formation of partnerships between the local governments, financial
community and private sector businesses would make it possible to consolidate non-
conforming and under - utilized parcels of land for strategically located business parks.
7. Target the manufacturers of environmentally responsible products such as recycle /reuse and
solar products which will utilize the growing raw resource of materials and technologies
becoming available through our community's increased recycling and solar energy efforts.
The City will select industries in these categories carefully and attempt to target firms with
a demonstrated willingness to work closely with a community on a mutually agreed upon
strategy for further enhancing the local environmental programs and establishing an
environmentally sound remanufacturing process.
8. Identify products purchased by local manufacturers and vendors and develop programs to
manufacture and market those goods locally.
9. Identify the City's transportation strengths such as the Municipal Airport, freeway access
to markets and service providers such as Federal Express and United Parcel Service and
emphasize these facilities to targeted businesses.
Recommended Actions for Business Retention and Expansion
1. Provide assistance to local businesses through matching grant and revolving loan fund
programs, core customer development, business counseling and economic reconnaissance
to assess actual needs of local businesses. Direct financial assistance for business expansion
based upon new job generation would be made available through the Ukiah Business
Enterprise Center. Marginal businesses in need of retention assistance would be provided
with counseling services in the areas of core customer identification, business plan
development, and fiscal management.
2. Through the Ukiah Business Enterprise Center, a program will be developed to; first,
identify those goods which are currently being marketed by local retailers and mail -order
distributors which may be manufactured in Mendocino County; and second, coordinate with
local manufacturers and micro - enterprise entrepreneurs to shift the production of identified
goods to those firms. Better coordination between the local production of these goods and
local retailers will greatly enhance this plan's goal of a community based economy.
3. Establish an inland Mendocino County Tourist and Convention Information Center operated
by the Chamber of Commerce to provide a valuable focal point from which our emerging
tourism enhancement program may be coordinated. This activity will boost taxable sales
for local businesses, support the success of special events and attractions, and enhance the
overall image of the Ukiah Valley. The promotion of Ukiah as a desirable
convention /destination point is key to the success of this tourism effort.
4. The City shall initiate a proactive and aggressive marketing effort in cooperation and
coordination with the Greater Ukiah Chamber of Commerce, Ukiah Main Street Program,
Downtown Merchants, and the Mendocino County Farm Bureau. The Program should
include a regular calendar of downtown events, greater promotion of the Farmer's Market,
joint marketing promotions among local retailers, and the development of a downtown
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Mendocino Bounty and Wine Center retail outlet to showcase local goods and products.
5. In cooperation with community organizations such as the Chamber of Commerce, Main
Street and Downtown Merchants, establish a comprehensive marketing strategy directed
towards increasing consumer use of local retail and service businesses. This program
should also consider exporting and international marketing opportunities which exist through
California marketing facilitators. The Chamber of Commerce could take a pro- active role
in coordinating awareness programs to allow Ukiah businesses to access the state, national,
and global marketplace for both industry and tourism. Emphasize export and local sales
networking, and expansion of food service facilities in the downtown.
6. Attract added value manufacturers in the areas of secondary wood product manufacturers,
such as furniture, home construction components, and outdoor patio furniture. Utilizing
the area's raw agricultural products for food processing such as fruit juice, dried fruits,
meats; and, on a smaller scale, specialty jams, condiments and gourmet items.
7. Educate local businesses on government procurement and contracting opportunities.
8. Develop a business outreach program to identify needs and conditions in which businesses
operate. Data from these outreach activities shall be utilized to initiate and focus business
retention programs.
Recommendations for Job Training
1. Under the auspices of the Ukiah Business Enterprise Center, an agency would be designated
to assess and coordinate job training resources and needs with training providers. The
City's leadership to integrate and coordinate employment and training services will improve
availability of resources to clients in the Ukiah Business Enterprise Center.
2. Encourage the educational community to develop and implement a comprehensive training
program in response to local business needs in the form of contract or short-term training;
and focus college training programs on ethnic diversity, and high -tech skills to enhance
skills pool.
3. An awareness program should be developed to identify all available funding assistance being
provided through the various job training and placement providers. These funds could be
utilized as an incentive to provide target businesses with skilled, affordable labor.
4. A four -point program to integrate youth into the job training program should be developed
in cooperation with Mendocino College and Ukiah High School. The components of the
program would include:
a. Initiate awareness and outreach programs with the designated job training coordinator
and the educational community to orient youth to available job training programs;
b. City, through the Ukiah Business Enterprise Center, would take the lead in establishing
youth apprenticeships /mentoring programs within local government and small business;
c. Encourage youth participation in economic development policy setting forums in our
community;
d. Under the auspices of the Ukiah Business Enterprise Center, develop plans for youth
oriented businesses run by peers.
5. Develop job training programs which identify changing private sector needs and utilize local
in
business people, service clubs and youth and senior organizations to meet those market
needs.
Synopsis
Successful economic development takes both time and money. Continued marketing and
►otion will be essential to establish an enhanced image for Ukiah as a business environment_
Realistic economic planning must be a cooperative effort of both the public and private
sector. Cooperation between the City of Ukiah, County of Mendocino, local financial
community, and community -based organizations such as the Downtown Merchants Association,
Ukiah Main Street Program, and the Greater Ukiah Chamber of Commerce is an essential part
of this partnership. The City is excited and encouraged by the direction of the community based
organizations, such as the Chamber, are taking in being a clearinghouse for government and
business activities and events.
This Overall Economic Development Strategy is designed as a five -year guide which should
be viewed as a living document that will experience changes and amendments that reflect the
fluctuating needs of the community. As a result of this strategy, the next five years will bring
to Ukiah the foundation of a healthy, diverse, community -based economy, anchored by
environmentally sensitive, resource based manufacturing firms, and a vital retail mix, which
creates new and rewarding jobs for our community.
R2: URA
OEDP
Rev :2/4/93
CITY COUNCIL /REDEVELOPMENT AGENCY
Colleen B. Henderson, Mayor /Chairperson
Fred Schneiter, Vice Mayor /Commissioner
Richard Shoemaker, Councilman /Commissioner
James Wattenburger, Councilman /Commissioner
Frank McMichael, Councilman /Commissioner
DOWNTOWN MASTER-PLAN COMMITTEE
Martha Barra
Kathy Fowler
Rick Hansen
Arlene Hughey
Carole Jones
Charlie Kelly
Fontaine McFadden
Frank McMichael
Al Norris
Judy Pruden
Roy Smith
C /TY /AGENCY STAFF
Charles L. Rough, Jr.,
City Manager /Executive Director
Michael F. Harris,
Community Development Director /Assistant Executive Director
Larry W. DeKnoblough, Jr.,
Redevelopment /Economic Development Coordinator
Bill R. Beard
City /Agency Engineer
REDEVELOPMENT ARCHITECT
Michael G. (Skip) Carlstrom
Carlstrom Architect, Inc.
ADOPTED JUNE 5, 1992
r
TABLE OF CONTENTS
CHAPTER
PREFACE
10 INTRODUCTION 1
Overall Goals for Downtown Revitalization ......... 4
2. FINDINGS .......................... 5
Downtown Boundaries 5
Overall Appearance 5555 .. . ........... 5555.. 7
Street /Utility Improvements .................... 7
Building Conditions 5 0 0 0 ..................... 7
Residential /Mixed Uses ....................... 8
Design. . . . . . . . . 89 . . . . . . . . . . . . . . . . . . . . . . . 9
Streetscape Conditions ....................... 9
Downtown Plaza /Park ...................... 10
Parking .. ............................... 10
Traffic /Pedestrian Circulation .................. 11
Retail /Commercial Conditions 12
Palace Hotel ............................. 13
3. RECOMMENDATIONS AND IMPLEMENTATION ....... 15
Street /Utility Improvements ................... 15
Unreinforced Masonry Buildings ................ 16
Residential /Mixed Uses ..................... 9 16
Design.. ..............................0 17
Facade Improvement Program ................. 18
Streetscape Improvements 19
Downtown Plaza /Park 22
Parking.......... 22
Downtown Parking Policy .................... 24
Traffic /Pedestrian Circulation .................. 27
Creek Restoration a a 0 M 4 a 4 30
Retail /Commercial Improvements 31
Other Implementation Strategies 32
4. PROJECT IMPLEMENTATION SCHEDULE ..... 0 4 . 4 4 .. 36
Phase I Project Budget ..................... .
APPENDIX
Ukiah City Council Resolution No. 92 -24
Ukiah City Council Resolution No. 92 -65
Ukiah Redevelopment Agency Resolution No. 92 -8
Ukiah Redevelopment Agency Resolution No. 92 -9
Design Guide
Summary of Downtown Parking Resources
Street Observation Teams' Priority List
PREFA CE
A downtown, like the people who inhabit it, goes through a variety of
changes, phases, and rites of passage during the course of its life. Our
downtown has had a long and proud history during the evolution of this
community, marked by the highs and lows, ups and downs that accompanied
its beginning, growth, and maturity. Now it finds itself, out of choice as well
as necessity, positioned to be reborn, renewed, and revitalized in order to meet
the exciting challenges and changing circumstances of a rapidly approaching
new century. The question is whether we are up to the challenge and
commitment required for this arduous task..
Throughout the State and region are countless examples of downtowns
that were at one time or another in a state of depressed economic decline and
neglect, and written off by the skeptics as a dying dinosaur in an age of
shopping center sprawl. Realizing that a downtown is very much the physical
center of gravity in a community, and the key to its very definition and image;
a variety of private /public partnerships have formed from town to town and
marshalled their combined talent and resources to revive, reclaim, and
reenergize the social and economic viability of their downtowns. As a result,
these downtowns have reemerged as vital and vibrant, social and commercial
centers within their respective communities.
For Ukiah, our moment has arrived. The City of Ukiah, through its
Redevelopment Agency, has finally achieved a funding mechanism by which to
finance a number of long overdue capital improvement projects in the
downtown area, and to facilitate with the private business community, the
physical and economic rehabilitation and revitalization ofour downtown. A true
private /public partnership comprised of the unique talents, skills, creativity, and
commitment in our private, public, and non - profit sectors has been forged to
restore the downtown to its rightful place as the social and economic
cornerstone of our community.
The following Downtown Revitalization Master Plan represents the
culmination of a full year's work by a highly dedicated and committed
Committee comprised of individuals representing the City of Ukiah, Greater
Ukiah Chamber of Commerce, Downtown Merchants Association, and Ukiah
Main Street.
Through their energies and hard work, a bold and realistic action plan for
the social and economic revitalization of our downtown has emerged. It is a
phased plan which recognizes two essential truths that must be at the core of
any successful downtown revitalization plan.
i
The first truth is that it does not matter how much money or number of
resources you have at your disposal; without public support, leadership,
commitment, and a strong private /public partnership; a successful, sustainable
and long lasting revitalization will not occur. The citizens and leadership of
this City, as well as the business organizations of our community, and the
citizens committees presently engaged in the Growth Management/General Plan '
review process have all indicated a strong commitment to downtown
revitalization, and for a revitalization effort built on the foundation of a
private /public partnership.
The second truth is that in order for any action plan for downtown
revitalization to ultimately succeed, it must work on a number of different
levels. At the very core, it must be a plan that focuses and leverages its limited
financial resources in such a manner as to produce beneficially effective and
long lasting results. It must be a plan that effectively marries physical
improvements (public rights -of -way, streetscaping, aesthetics, facade
renovations, building upgrades, etc.) to a series of community -based business
assistance and economic incentive programs. Finally, it must be a plan that
recognizes the importance of the downtown as a key element in defining our
City's quality of life and environment, and the range and potential for social and
community interaction, and as the center for community events and activities.
The Committee believes this Master Plan represents a recognition of these
basic truths, and as such has identified a series of realistic and attainable goals
and objectives. Finally, we believe this Master Plan embodies the very spirit
and essence of the five basic principles contained in the Vision Statement being
developed through the City's Growth Management /General Plan reviewprocess.
This Master Plan, its adoption, and implementation marks the beginning
of an historic economic revitalization program for this City. We are excited,
challenged, and optimistic that the outcome of this effort will be a positive
rebirth and restoration of Ukiah's downtown, and promises to help define the
quality of life in our community for years to come.
Charles L. Rough, Jr., Chairman
Downtown Master Plan Committee
i
CHAPTER ONE
INTRODUCTION
The City of Ukiah has a population of approximately 15,000, and is located
along the Highway 101 corridor, 115 miles north of San Francisco and 160 miles
south of Eureka. It is the agricultural, urban, and governmental center for Mendocino
County.
In November 1989, in order to implement a major downtown revitalization
effort, the City of Ukiah adopted the Ukiah Redevelopment Plan for the Redevelop-
ment Project Area. The Project Area encompassed a significant portion of the City
with the downtown identified as the primary focus of attention and activity. All of
the projects discussed in this Plan are intended to be consistent with those discussed
in the Ukiah Redevelopment Plan and Redevelopment Project Area Environmental
Impact Report.
The first phase of the Downtown Redevelopment Project began in May of
1991, when under the auspices of the City Council /Redevelopment Agency Board,
City Manager /Executive Director Charles Rough convened the Downtown Master Plan
Committee. Eleven members, including representatives from the Chamber of
Commerce, Ukiah Main Street, and Downtown Merchants Association began the
arduous task of defining revitalization efforts. The Committee's mission was to
examine recommendations from the Redevelopment Plan and Plan Strategy and
develop them into a cohesive Master Revitalization Plan to guide revitalization efforts
in the downtown.
During the course of developing this recommended Master Revitalization Plan,
the Master Plan Committee researched, studied, and evaluated a range of downtown -
related issues. Those central issues are summarized as follows:
1. How should the downtown be physically defined?
2. How is the downtown presently viewed by residents, shoppers, and visitors?
3. What are the present strengths and weaknesses of Ukiah's downtown?
4. What should our downtown represent? What should it be in order to sustain
and survive community change, evolution, and growth?
50 What present physical characteristics (structures, design, land uses, traffic
circulation, aesthetics, etc.) in the downtown work against its success as a
viable downtown? What present physical characteristics work in its favor?
6. Should the Redevelopment Agency adopt a set of voluntary or mandatory
design guidelines to assist downtown revitalization and downtown property
owners?
7. What type(s) of business /commercial mix will better ensure economic growth
and vitality in the downtown?
8. What is presently attracting people to the downtown, and for what reasons?
What are the reasons people are shopping elsewhere? What steps can we take
to attract more people and to increase foot traffic in the downtown?
98 Should a thematic approach
to
the downtown's
physical rehabilitation and
revitalization be adopted? If
so,
what should that
overall theme be?
10. Where are the most effective locations in the downtown to introduce improved
pedestrian elements?
11. How can the creeks be restored to enhance pedestrian use of the downtown?
12. Does the downtown have a parking resource problem? If so, what is the most
cost - effective way of resolving the problem?
138 How should the unreinforced masonry building issue be best addressed?
14. Should residential uses in the downtown core area be encouraged and
enhanced?
15. How can the old train station be incorporated into a public transportation center
or "hub" for the downtown?
16. Is there any way that School Street can be opened up visually to State Street?
17. Should a downtown park or plaza be established as a focal point for downtown
events or activities?
18. Where are bicycle paths through the downtown most appropriate?
19. How can we mitigate the strip appearance of State Street and improve its
overall appearance?
20. What types of economic incentives should be established to attract new
businesses to the downtown and retain existing businesses in the downtown?
21. What additional landscaping amenities need to be introduced to the downtown?
2 1
225 What types of revitalization efforts should be addressed on State Street, School
Street, Main Street, and Perkins Street?
23. What elements can we introduce into the downtown to better signify it as the
core central business district of our community?
249 Are present, as well as future, actions by the County of Mendocino in the best
interests of downtown revitalization, or adverse to the overall goals and
objectives of downtown revitalization?
25. Will a proposed consolidation of the Chamber of Commerce, Downtown
Merchants Association, and Main Street organizations into one larger business
organization result in a more coordinated approach to downtown revitalization,
and the planning for continual downtown events and activities?
The Master Plan Committee's initial task was to envision a revitalized
downtown that effectively functions as the focal point of the community on a number
of different levels. On one level, the Committee envisions a downtown that continues
to serve as the professional, financial, and government services center of the
community. On another level, the Committee envisions the rebirth of the downtown
as a unique specialty retail experience for the consumer /shopper. On yet another
level, the Committee envisions the downtown as physically scaled and designed to
be more pedestrian friendly. And finally, the Committee envisions the downtown to
be the meeting and gathering place for planned as well as spontaneous meetings,
community events, and activities. All of this is to be done in the context of enhancing
and preserving the small town ambiance which remains one of Ukiah's attractions and
strong points.
Meeting on the average of once every three weeks, Committee members
formed "observation teams" and through field activities began to identify their likes
and dislikes of our downtown. Each team was assigned a specific block and was
requested to provide creative solutions for areas where deficiencies existed and to
compile a "wish list" of improvements to the general area. This was a very productive
process that brought forward a long list of block -by -block improvements which have
ultimately formed this recommended Plan.
Recognizing that Ukiah is a City of modest economic means, the Committee
began to prioritize its goals into various phases for implementation. The goals and
objectives of this Plan are a direct result of the effort and dedication provided by the
Downtown Master Plan Committee.
Early on in the process the Committee identified the following five recommend-
ed overall goals for Downtown Revitalization.
3
OVERALL GOALS FOR DOWNTOWN REVITALIZATION
1. To enhance the downtown's role as a business, professional, government, and
specialty retail center for the City.
2. To establish and reinforce downtown's role as a community focal point.
3. To enhance the physical and aesthetic image of downtown Ukiah as a source
of community pride.
4. To increase outdoor activities, dining opportunities, and community gatherings
in the downtown.
55 To promote mixed uses (residential), including residential- quality maintenance,
and pride of ownership in downtown properties.
El
CHAPTER TWO
FINDINGS
A series of findings by the Downtown Master Plan Committee form the basis
for the recommended Downtown Revitalization Master Plan. The Committee's
findings are based upon a number of factors including input from the 1979
Charles Hall Page & Associates School Street Study, the Downtown Parking District
Study completed by Agency Staff in August, 1991, the 1989 EDAW Streetscape
Design Guidelines, the Ukiah Redevelopment Plan, Plan Strategy, and Redevelopment
Project Area Environmental Impact Report approved and adopted in November, 19890
In October, 1991, in the course of the Master Plan Committee process, the firm
of Williams - Kuebelbeck and Associates was retained by the Ukiah Redevelopment
Agency to conduct an economic evaluation of the Ukiah area with a focus on the
economic conditions, strengths, and weaknesses of Ukiah's downtown.
This Study provided the Master Plan Committee with further substantiation for
the need to rehabilitate and refurbish the downtown area if it is to function as the
community's central business district. Specific deficiencies identified included
inadequately utilized parking resources, low levels of pedestrian activity, inconsistent
physical conditions, and most importantly, that the downtown does not function as
a unified, easily identifiable City focal point.
However, the Economic Study states, "the citizens of Ukiah have indicated a
strong commitment to the establishment of an identity for the downtown as a
financial, professional, and governmental services center with thriving specialty retail
and support businesses. The City's newly proposed Downtown Master Plan is the
mechanism to accomplish this goal."
With this information, the Downtown Master Plan Committee identified the
following findings which form the basis for the Committee's recommendations.
1. Downtown Boundaries
Ukiah's downtown is defined by the historical, commercial "core" area of
approximately 18 square blocks, characterized by a number of traditional zero -
setback commercial storefront buildings. The core is surrounded by a perimeter
area from Norton Street south to Mill Street and Oak Street on the west,
moving east to Leslie Street (Diagram 1). Also included for the purposes of this
Master Plan is the primary access corridors of State, Perkins, and Gobbi
Streets.
5
DIAGRAM #1
_ _ r CORRIDOR COMMERCIAL
j PROPERTIES CORE PROPERTIES
6
i
I
i
2.
K4
4.
Overall Appearance
While there are a number of excellent examples of individual private historic
restorations and general revitalization efforts throughout the downtown core
area, the overall appearance and impression of the downtown to residents and
visitors is of a deteriorating and dysfunctional downtown, lacking the charm
and beauty of the greater Ukiah Valley which surrounds it,
The downtown generally appears both physically and economically blighted
which detracts from its ability to be a viable center for commercial and
pedestrian activity, and acts as a disincentive to attracting new businesses to
the area. The downtown core is identified by its inventory of zero - setback,
historic brick commercial buildings. Many of these structures are 50 to 100
years old and constructed of unreinforced masonry. Additionally, many
buildings have undergone periodic facade improvements and building renova.
tions with little regard for architectural compatibility and continuity. With the
shift in retail patterns to neighborhood shopping centers, professional and
business services have proliferated. Specialty and service - oriented retail,
however, maintain a fragile and inconsistent presence in the downtown area.
Overall downtown Ukiah does not function as a unified City focal point.
Street /Utility Improvements
The impact of overhead utility lines is a visual blight on the downtown. Their
presence detracts from the street level view of building fronts and clutters the
view corridor along downtown streets. Utilities are currently underground on
School Street and portions of State Streets however, State, Main and Perkins
Streets remain to be completed. Undergrounding of utilities is one of the
highest priority infrastructure improvements identified by the Master Plan
Committee.
Street improvements are needed to provide street resurfacing and assist in
raising the level of service traffic flows. Many streets such as State Street are
deteriorated or corrugated, reducing their effectiveness and desirability as
thoroughfares in the downtown.
Building Conditions
As stated previously, downtown Ukiah contains a heavy concentration of
historic brick commercial buildings. Among these, 42 are identified as
7
unreinforced masonry buildings and are listed on the City of Ukiah's potentially
hazardous Unreinforced Masonry Buildings List.
These buildings are peculiarly problematic to revitalization due to imminent
public safety concerns, costly structural requirements unique to unreinforced
masonry, and distressed economic conditions which prevail in the downtown.
For many property owners an intensive rehabilitation program represents an
economic hardship.
The task before the Master Plan Committee was to provide an adequate
mitigation program that would minimize the potentially hazardous conditions
presented bythe buildings without economically devastating the existing tenant
base and /or creating mass demolition of the downtown's structural historic
resources.
The recent federally enacted Americans with Disabilities Act (ADA) contains a
number of new requirements that will dramatically affect back office businesses
and second story structures. The potential impact on cost and business
location will be significant. The combination of State mandated seismic and
Federal ADA requirements present issues and financial impacts requiring
resolution if any revitalization plan is to be ultimately successful.
One of the most immediate impacts of these factors will be an understandable
reluctance on the part of downtown property owners to invest in older building
stock.
58 Residential /Mixed Uses
Downtown Ukiah contains a variety of uses. Many contribute to a vital
downtown shopping and business environment while others are marginal and
even detrimental to an economically successful downtown.
Aside from a small minority of perimeter properties, the vast majority of
downtown is in the C -1, Light Commercial Zoning District. This is an
appropriate land use designation for downtown, as uses allowed and permitted
in the C -1 Zone range from residential to light industrial such as warehousing
and mini - storage.
Deficiencies in downtown land uses are apparent in the lack of residential uses
in and around the downtown, which in many similar downtowns in other
communities provides a full -time population to support a variety of downtown
businesses. Additional deficiencies exist where office or non- retail activities
F'3
i
occupy significant amounts of ground floor street -front locations, creating large
gaps and inconsistencies in the street level retail mix.
Because the C -1 zoning provides such flexibility in allowed and permitted uses,
no regulatory changes are needed. However, some mechanisms must be
implemented to stimulate and encourage residential growth, street level
continuity to store fronts, and a healthy retail mix.
6. Design
Improvement of the downtown's overall visual image is an important part of the
comprehensive revitalization plan. The downtown must compete with
neighborhood shopping centers by emphasizing tradition and flavor, and a
unique environment that a shopping center cannot adequately replicate.
The Ukiah Redevelopment Plan and Plan Strategy strongly identified the
enhancement of the downtown area and its primary entry corridors as the focus
of the Redevelopment Project. A sense of identity and design improvements
have been recommended by the Downtown Master Plan Committee as a
primary need of Ukiah's Downtown. Design improvements by themselves
cannot bring about revitalization; however, the improvement of downtown's
visual image by providing design standards is key to successfully enhancing the
physical appearance of the downtown. An advisory design guide to assist
downtown property owners in renovation and /or restoration of their property
is fundamental to establishing the design sense to our downtown that has been
lacking to date.
79 Streetscape /Conditions
Much of the charm and economic potential of successful downtowns is directly
related to their pedestrian amenities, focus, and scale. Downtowns have
historically emphasized pedestrian oriented businesses, gathering places, and
amenities. This Plan seeks to re- orient Ukiah's downtown to encourage
greater pedestrian use of the downtown than is currently the case.
Downtown Ukiah is similar to many other California cities in regard to public
improvements. A basic structure has been in place over a number of years, but
it does not create the type of pedestrian environment discussed above. While
the City has in place streetscape standards, completed by the EDAW Study in
1989, these are not adequate in scope to meet the unique needs of the
downtown.
97
Rell
60
To realize their potential as a revitalization tool, design oriented public
improvements must be aggressive enough to achieve a significant visual and
psychological impact while being appropriate for Ukiah's modest economic
means.
The following improvements are elements missing in the downtown which
should be completed:
a. Street tree and buffer strip landscaping
b. Sidewalk expansion and improvements
furnishings, and trash receptacles
c. Decorative street lighting
d. Completion of a downtown Plaza /Park
e. Creek restoration and landscaping.
Downtown Plaza /Park
including informational kiosks,
One of the historic elements of America's downtowns, the traditional town
square, is missing in Ukiah. There is no central focal point for community
events, or a gathering place that represents a central vantage point for the
downtown. The Committee believes if revitalization is to be successful in the
downtown, a central downtown park /plaza must be established. As a
traditional gathering place, a downtown plaza more than adequately serves this
purpose. The Downtown Master Plan Committee has not identified a specific
location, however, ideally, the plaza should connect State and School Streets
providing a clear identity and view corridor linking the two thoroughfares, and
establishing the physical center of Ukiah. Uses in the park /plaza would be
passive with landscaping consisting of primarily a "greenbelt" adorned by
pathways, artwork, pedestrian elements and umbrella type trees. The
plaza /park should be viewed as one of the important elements integral to the
success of any revitalization effort.
Parking
Historically, Ukiah's downtown merchants have felt at a disadvantage when
competing with neighborhood shopping centers and their large, highly visible
parking lots. In August, 1991, the City of Ukiah completed a study of
resources available within the Downtown Parking District. This study indicated
1,403 on and off - street parking spaces exist within the District.
The
primary finding resulting
from these
studies
is that adequate
resources
exist
to meet parking needs.
However,
a heavy
concentration of
on-street
10
parking by downtown employees, the lack of visibility and public knowledge of
the downtown parking lots, general unattractiveness of the parking lots, and
the unwillingness of downtown shoppers to utilize perimeter municipal lots
because of the unfriendly pedestrian environment, create the perception of a
lack of parking in the downtown. In fact, a community attitude survey
conducted for the City in June, 1991, found Ukiah's citizens equally divided on
whether parking in downtown was adequate or inadequate.
Municipal parking facilities are poorly landscaped, lacking trees, lighting, and
other amenities necessary to attract usage. Until recently, these parking
facilities were poorly identified by public signage, providing little information as
to their location and allowed time limits. These factors have contributed to the
underutilization of downtown municipal parking facilities.
Any attempt to revitalize downtown Ukiah will require a solution to the
inefficient utilization of parking resources and improvement of the public's
perception of the lack of parking. Currently lacking is a comprehensive
downtown parking policy that will identify the methods to resolve the problems
and deficiencies discussed above, and which is tailored to the special
opportunities and constraints of downtown.
10. Traffic/ Pedestrian Circulation
Downtown circulation is a combination of historic local streets laid out prior to
the City's incorporation in 1876, the old state highway which is now State
Street, and primary access corridors of Perkins and Gobbi Streets linking the
downtown to the Highway 101 Freeway. While downtown traffic flows
reasonably well, there are inherent conflicts where these different systems
meet. This conflict is especially apparent during peak hours at the intersections
of Perkins and Main Streets, Perkins and the Highway 101 interchange, and
Gobbi Street at Main and State Street intersection. This problem will be further
exaggerated with incremental development east and west of the freeway.
Another recognized problem is the right -of -way and speed of traffic on State
Street which creates significant barriers to downtown pedestrian movement
and access to parking facilities. The 1979 TJKM Traffic Study completed for
the City of Ukiah indicated traffic volumes on State Street to be 20,000
vehicles per day, making vehicle use preeminent and creating a major
pedestrian barrier through the center of downtown. While State Street
maintains a number of viable commercial businesses, the primary focus of this
corridor should be vehicle transportation and pedestrian uses should remain
subordinate to vehicle flow on State Street.
11
11
No major vehicle circulation projects are being proposed in this Plan, as
circulation patterns are being considered through the City of Ukiah's General
Plan Revision Project. This plan does include some circulation recommenda-
tions to the Growth Management /General Plan Steering Committee which are
specific to the unique conditions downtown. Pedestrian and bicycle elements
such as enhanced crosswalk treatments and new bicycle lanes are needed to
encourage increased pedestrian activity and stimulate use of parking facilities
east of State Street.
Retail /Commercial Conditions
The City's Economic Study by Williams - Kuebelbeck indicates there are
approximately 1,650 government employees in Ukiah. Of these, nearly 700 are
employed with the County of Mendocino in or around the downtown. The
County occupies 352,000 square feet of building space in Ukiah, a large part
of which is located downtown.
While this level of County occupancy and dispersal of office facilities is helpful
in reducing vacancy rates, many key retail locations are utilized for government
services. Because downtown Ukiah functions as a professional, civic,
government, and legal center, many street level storefronts are occupied by
these uses. This creates inconsistency in retail /service mix at the pedestrian
level. The occupancy of these prime retail locations by non - pedestrian oriented
uses makes "window shopping" difficult and inconvenient, and tends to reduce
shopper - oriented foot traffic in the downtown district.
Vacancy rates in the downtown are approaching 15% of available square
footage. This presents logistical downtown management problems should the
County relocate or consolidate their operations. Should this occur, the vacancy
rate could conceivably double. However, those prime retail locations would
become available for specialty retail, business support, and restaurant services.
An aggressive and proactive downtown business recruitment program will be
needed to minimize impacts from vacancies created by County relocation in
order to locate new tenants.
Within the downtown area, better utilization of existing space is needed to
attain higher sales volumes and stimulate revitalization. In addition to the
inappropriate street level location of office and professional services, under -
utilization of retail space is the result of many other factors including structural
obsolescence, fragmented lot sizes, and marginal business activity. Marginal
businesses are identified by low customer interest, low sales volume,
ineffective mix of goods and services, and low maintenance creating an
unattractive physical appearance. The Will iams- Kuebelbeck Study found many
12
of these marginal businesses are
inconsistent
with
surrounding retail
operations
and occupy prime space which
could be put
to a
higher economic
use,
Within the existing retail mix there are approximately 70 specialty retail and
business support services present in the downtown. A conspicuous weakness
in that mix is the lack of variety of restaurant /dining establishments.
Businesses of this nature provide an anchor for downtown employee activity
during the working day and create a draw for activity after normal business
hours, stimulating the overall business climate. In addition, the hours of
operation by the majority of downtown businesses are generally limited to the
business week and tend to work against developing a clientele that will
frequently visit the downtown in the evenings and weekends. As such,
commercial activity in Ukiah on weekends predominately takes place at the
shopping centers outside the downtown.
12. The Palace Hotel
The former Palace Hotel continues to represent a major example of physical
blight and deterioration in the downtown area. For the last several years the
building has been the subject of contested litigation over the issue of
ownership. The owner of record has repeatedly indicated a strong commitment
to renovate and restore the building, with a variety of office business /retail
uses, if and when the litigation is concluded in his favor. The recent court
decision apparently grants ownership rights to all the interested parties, but it
still remains to be seen whether all or some of the parties will seek to redevelop
the hotel, or sell their interest in the hotel.
In the meantime, the City's Redevelopment Agency has filed an official offer
of intent to purchase the former Palace Hotel in the event the outcome of the
present litigation results in diminishing interest on the part of the legally
determined owner or owners to cooperatively proceed with renovating the
building. The City and /or Ukiah Redevelopment Agency has been precluded
from taking any further action until the current litigation was fully adjudicated.
The Committee is also aware that the cost of renovating the former Palace
Hotel is significant, particularly when considering the costs associated with
seismic retrofit and the removal of underground tanks.
Clearly, the citizens of Ukiah are divided on the issue of preserving or
demolishing the former Palace Hotel to make way for other types of downtown
development, as evidenced in the June, 1991 Community Attitudes Survey.
13
However, the Committee believes private market forces and the economic
feasibility of renovating and /or restoring the former Palace Hotel should
ultimately dictate the fate of the building. In addition, the Committee believes
all possible private and /or public /private alternatives should be actively explored
before any final recommendation for possible demolition is made.
14
CHAPTER THREE
RECOMMENDATIONS AND IMPLEMENTATION
The Downtown Revitalization Master Plan is the first comprehensive revitaliza-
tion plan ever completed for Ukiah. It is an ambitious yet conscientious plan, faced
with a great many challenges. It must go forward in light of the continual lure of local
as well as large regional retail centers. It will be implemented during an era of limited
resources and funding mechanisms. And, most importantly, the plan must
accommodate the interests of a great many citizens, harness their energies in support
of a better downtown, and maintain their commitment over the long term.
To be successful the Plan must not be thought of as a rigid blueprint, but rather
a course of action which must be periodically reviewed, modified, and revised to
reflect changing circumstances and conditions. The Plan must build upon the City's
leadership and commitment to the downtown and the momentum for revitalization
established by the Redevelopment Agency. Successful implementation will involve
cooperative participation by many others including Ukiah residents, downtown
property owners and merchants, service professionals, Main Street, Downtown
Merchants Association, Chamber of Commerce, and the County of Mendocino. Any
revitalization of our downtown must be a shared public - private partnership from the
very beginning if it is to be ultimately successful.
Local government's role in implementation of the Master Plan has been
structured to be an active one which utilizes public land ownership and funding to
stimulate and support private initiative and investment. The City's role should be one
of a catalyst and must be matched by private commitments on a financial as well as
philosophical level.
The recommendations and implementation strategies identified for each finding
is presented in a two- phased approach. Phase I improvements will occur between
Fiscal Years 1992/93 and 1996/97. Phase Il will begin at the end of Fiscal Year
1997, and be funded through additional Redevelopment Agency tax increment bond
financing. Recognizing the City of Ukiah and Ukiah Redevelopment Agency are
agencies of modest economic means, the Committee believes the phasing of
improvements will allow greater latitude in project selection and create a realistic
methodology to achieve the overall goals and objectives of this Plan. Based upon the
findings discussed in Chapter Two, recommendations for improvements are as
follows:
STREETWILITY IMPROVEMENTS
1. Undergrounding of Utilities - The Master Plan Committee recommends the
undergrounding of utilities commence immediately along State, Perkins, and
Main Streets. No undergrounding on School Street is necessary as it has
previously been completed. This project will be completed within Phase I and
15
1
Phase II of the Downtown Revitalization Program. Construction will begin on
State Street between Gobbi Street and Norton Street in 1993. Perkins Street
will be done in Fiscal Year 1993/94. Main Street, from Mill to Perkins, will be
completed in Fiscal Year 1994/95, Phase II improvements will include State
Street, from Norton to Low Gap Road, and Main Street from Perkins to Norton
Streets.
2. State Street Overlay - The Committee recommends the resurfacing of State
Street between Perkins Street and Low Gap Road be completed in Fiscal Year
1992/93.
UNREINFORCED MASONRY BUILDINGS
In response to the need for a compliance schedule for the City's Unreinforced
Masonry Buildings (URM) Program, the Master Plan Committee completed a
recommended mandatory seismic rehabilitation based upon application for building
permit(s) valued at or exceeding 50% of the assessed or appraised existing property
values. This recommendation was forwarded to the City Council as Resolution
No. 92 -24, and adopted on November 6, 1991, adding to and amending Chapter 2
of Division 3 of the Ukiah City Code.
With the adoption of this resolution, the City's URM Program was complete and
in compliance with State requirements. In addition, the City of Ukiah Building
Department has on file an engineering earthquake safety evaluation for each listed
potentially hazardous unreinforced masonry building. These reports shall be a
consideration by the Redevelopment Agency in determining financial incentives for
facade improvements during Phase I and in the development of Phase II retrofit
assistance programs.
Remaining to be resolved are the difficulties presented to building owners and
downtown tenants by the Americans with Disabilities Act (ADA). The new codes
may require extensive retrofit to provide handicapped access to back office and
second story facilities. However, guidelines are unclear and some buildings may be
exempt.
The excessive cost of retrofitting downtown buildings to meet seismic and ADA
code requirements could serve as a disincentive to private reinvestment and
revitalization of the downtown, unless there is legislative relief on the federal or state
level.
RESIDENTIAL /MIXED USES
One of the goals of the City of Ukiah and this Plan is to improve the vitality of
the downtown economy by encouraging a mix of uses which are mutually supportive.
16
This includes increases in residential uses in and around the commercial core which
can be a catalyst for encouraging additional restaurant and service - oriented
commercial /retail businesses.
Land use designation changes are not necessary since the C -1 zoning already
in effect provides for these uses already. However, the City of Ukiah and the Ukiah
Redevelopment Agency should encourage residential /commercial mixed use projects,
and actively pursue public /private development that will provide a higher concentration
of residential population in the area. There are no regulatory land use changes being
considered in order to implement the goals and objectives of this Plan. However,
there are recommendations identified in this Plan which achieve a downtown
comprised of mutually supportive commercial uses, the establishment of a 24 -hour
residential base in and around the area, and discouragement of marginal or non -
supportive businesses from locating downtown.
Secondly, the Agency must identify existing blighted structures and properties
that will support high density residential development and /or conversion. Once this
is accomplished, a program including development incentives such as density
bonuses, housing setaside monies, low interest loans, electric utility rebates, permit
fee reductions, and financing assistance through federal and state grant and
redevelopment grant monies must be constructed. Financial incentives should be
structured around densities, development standards, and maintenance requirements.
DESIGN
Design improvements by themselves cannot bring about revitalization.
However, the improvement of downtown's overall physical image is a critical
component of downtown revitalization.
1. Design Guide - The Downtown Design Guide (Appendix B), approved by the
Ukiah Redevelopment Agency on March 18, and adopted May 20, 1992, was
created as a set of advisory standards which will inform and assist property
owners in meeting this essential Agency objective.
Criteria in the Guide address key factors which contribute to the overall
character of the downtown, such as restoration of historic characteristics and
facade improvement standards. Public improvements such as landscaping,
street furnishings, sidewalk improvements, informational kiosks, and decorative
street lighting are also included. Standards in the Guide are specific to the
needs of the Downtown District and apply only to those properties within the
designated area taking precedence over any existing standards. The Design
Guide will serve as the long -term implementation tool to meet the Redevelop- j
ment Agency's goal of enhancing the downtown's visual and physical
appearance.
17
The standards set forth in the Guide are intentionally advisory and will be
utilized by the public for property development and improvements as well as by
Agency Staff and consultants in completing Master Plan projects. The "user
friendly" format has streamlined project approval by expediting application
processing for renovations, alterations, demolitions, and reconstruction. This
is accomplished by providing a project approval process for these types of
applications at the Design Review Board level very early in the process. The
initial Design Review Board will consist of five individuals appointed by the
Redevelopment Agency, who are currently serving on the Main Street Design
Review Committee, Future Design Review Boards will be appointed by the
Redevelopment Agency following a joint recruitment and interview process
completed by Main Street and the Redevelopment Agency,
Redevelopment Agency Staff and the Redevelopment Agency Architect will
provide advisory Staff support to the Board. The establishment of the Design
Review Board shall be completed at the earliest possible date.
Main Street will provide the Agency with advise covering design aesthetics
associated with the streetscaping improvements intended for the downtown.
FACADE IMPROVEMENT PROGRAM
A sense of identity and design improvements have been identified as primary
needs of Ukiah's downtown. Utilizing the Design Guide as its implementation tool,
the Ukiah Redevelopment Agency will initiate a public /private partnership facade
improvement program to be immediately initiated during Phase I of the revitalization
project. This voluntary program will utilize the consultant services of the Redevelop-
ment Agency Architect and provide economic incentives to property owners to
participate. Facade improvements are initially recommended to occur within the
downtown core but will, in later phases, be available throughout the District. This
Plan recognizes the contribution of the physical environment to the revitalization
efforts and seeks to enhance that contribution through this Plan.
The Facade Improvement Program will ideally commence on School Street and
progress to State Street, Main Street, and the east -west streets. However, individual
building owners willing to participate in the program are encouraged to do so,
regardless of location. Special considerations, outlined in the Design Guide, will be
applied to those properties fronting State Street with rear entrances will Main Street.
Architectural treatment of these rear entrances could include elements and amenities
such as lawn areas, patios and bicycle racks that will stimulate use of these entrances
as a second primary entrance.
WOO
This Program's financial incentives will include:
1. Free initial architectural consultation to downtown property owners with the
Redevelopment Agency Architect;
2. A paint -up /fix -up assistance program for those buildings requiring only minor
storefront improvements;
3. Matching public /private loan and /or rebate program for major storefront facade
renovations. These monies will be leveraged to encourage private participation
and reinvestment in downtown building renovations. Property owners will also
be made aware of special federal tax incentive programs that are available
through provisions of public easements for historical building front renovations.
Performance standards and maintenance commitments to rehabilitate and
restore building fronts will be included in this Program. Improvements will be
designed in accordance with the Design Guide and may be completed by, or in
cooperation with, the Redevelopment Architect. Facade improvements will need to
be approved by the Design Review Board.
The first project to occur in this program will be the renovation of the City's
own facility, the former City Hall building located at 203 South School Street. This
building is owned by the City of Ukiah and will be fully renovated, providing a model
for other downtown properties. Plans for the facility use after renovation include
housing the City's One Stop Business Assistance Center, the Redevelopment
Architect, private commercial tenants, and a possible micro /business enterprise
incubator center. The incubator center would encourage as well as provide home -
based business or new business start -ups an opportunity to affect the transition into
more permanent commercial enterprises in the downtown.
STREETSCAPE IMPROVEMENTS
The visual quality of downtown Ukiah will directly contribute to the success of
the revitalization effort and can be affected by a great many factors. Many of those
factors are provided for through the public improvements discussed previously.
However, the major factor contributing to a quality visual environment is property
owner and tenant recognition of the need to design improvements to a "human scale"
level. This is a scale that both targets the pedestrian while simultaneously stimulating
increased pedestrian activity.
The resulting visual quality provides an unobtrusive and uncluttered environ-
ment with scaled down creative sign designs, storefront displays, and facades. It is
a recognition that the passerby is on foot rather than in a moving vehicle.
The program outlined in this Plan is sufficient to bring about a noticeable and
positive change in the downtown's physical appearance. Streetscape improvements
in Phase 1 are scheduled for School, State, Main and Perkins Streets, and will include
sidewalk widening, installation of decorative bricks or pavers, street trees with
19
underground drip irrigation, landscaping, informational kiosks, water fountains, public
restrooms, and the introduction of pedestrian furniture. Curb lines and other
improvements will be kept simple in light of a limited budget with an emphasis on
high - quality materials to maximize attractiveness and minimize long -term costs. The
improvement program for the streets listed will be completed primarily during Phase I.
School Street
School Street has been identified by the Master Plan Committee as the major
retail corridor for the downtown. The Committee recommends that initial pedestrian -
oriented improvements occur in this area. Utilities are currently underground and
require no further improvements. Street trees are in place and fully developed as well.
Ideally, public improvements and streetscaping should occur in conjunction with or
after completion of any facade improvement work that is proposed. This will prevent
damage from occurring to streetscape elements.
1. Street Lighting - Decorative street lighting will be installed along both sides of
School Street from Clay to Henry Streets. Installation should be completed
concurrently with sidewalk and buffer strip improvements. Lighting styles will
be coordinated with street furnishings to ensure compatibility in design, quality,
and historical period.
21 Streetscape - Landscaping is needed from Mill to Henry Streets. As discussed
above, street trees are in place. However, additional landscaping for a buffer
strip between the curb line and the sidewalk is needed. Brick pavers are
appropriate for this use. In those areas where this method is used, tree wells
should be provided and planted with a flowering groundcover.
The City and downtown merchants have combined in the past to complete
planter areas at intersections between Stephenson and Smith Streets. These
planters will be expanded and enhanced to include street furniture and
decorative street signing and vehicle barriers.
3. Sidewalk Improvements - One of the objectives of the Plan is to increase
pedestrian uses and foot - traffic in the downtown. In order to accomplish this
objective, it is recommended the sidewalks be expanded in key areas. Specific
locations for sidewalk widening will be determined later. Any minor loss of
parking spaces along School Street will be replaced through expansion of
existing facilities or development of additional parking facilities adjacent to
School Street.
20
State Street
1. Street Lighting - Decorative street lighting will be installed along both sides of
State Street from Mill to Norton Streets. Phase II improvements will include
from Gobbi to Mill Streets.
2. Streetscape - An upgrade of existing street trees is recommended on State
Street from Gobbi Street to Low Gap Road during Phase I. The existing street
trees on State Street are inadequate in size, growth, and maintenance, and are
inconsistent with the Chinese Pistachio planted on School Street.
The Downtown Master Plan Committee has identified the Chinese Pistachio as
an appropriate signature tree for the downtown. These trees are currently well
established and reaching maturity along School Street. They provide seasonal
color changes, relatively rapid growth, represent low maintenance, and provide
appropriate umbrella width for shading and spacing along downtown streets.
Additional street tree plantings and buffer strip landscaping will occur on State
Street from Talmage Road to Gobbi Street during Phase II.
3. Sidewalk Improvements - While no widening of sidewalks is recommended for
State Street, decorative pavers compatible with those utilized from crosswalk
treatments will be installed at intersections and in street tree buffer strips.
Street furniture and informational kiosks will be installed along with other key
elements such as trash receptacles. These improvements will correspond to
the same schedule as outlined for streetscape improvements.
4. City Entry Monument Signs - City "Welcome to Ukiah" entry monument signs
will be established at the northern and southernmost limits of the City on State
Street.
Perkins Street
1. Street Lighting - Decorative street lighting is recommended on Perkins Street
between Orchard and Oak Streets to identify Perkins as the main entry into the
downtown.
20 Streetscape - Streetscape improvements including street trees and buffer strip
landscaping is recommended between Orchard Avenue and Oak Street.
30 City Entry Monument Signs - City "Welcome to Downtown Ukiah" monument
signs will be established at Perkins Street and Orchard Avenue.
21
Main Street
1. Street Lighting - Decorative street lighting is recommended for Main Street
between Clay Street and Gibson Creek during Phase II,
24 Streetscage - Phase I improvements will consist of street trees and buffer strip
plantings between Gobbi and Perkins Streets. Similar streetscape improve-
ments for Main Street, between Perkins and Norton Streets will be completed
in Phase H.
Remaining Streets
Street tree plantings and buffer strip landscaping will be completed along those
corridors where the public right -of -way provides space and access. In those areas in
which street trees are utilized without a buffer strip, decorative grates or flowering
groundcover should be placed within the tree wells.
DOWNTOWN PLAZA /PARK
The committee recommends the establishment of a downtown park /plaza in the
downtown core area. While a specific location at this time cannot be identified, the
location of the park /plaza is fundamental to successfully creating a "center" for the
downtown. The focus of the plaza will be to create a gathering and resting place for
shoppers, workers, residents, and visitors, as well as an entertainment center for
downtown community events and activities.
Agency Staff shall identify primary locations that meet the criteria defined in
the Master Plan Committee's findings and initiate negotiations in an attempt to
immediately purchase the property. Site selection shall be determined by location,
design potential, and cost. Development of the Downtown Plaza shall be completed
within Phase I.
The Downtown Master Plan Committee representing the Agency, the Chamber
of Commerce, Main Street and the Downtown Merchants Association shall make a
recommendation as to a final site and location to the Agency Board once negotiations
are concluded by Agency Staff; and shall work in concert with the Agency Architect
and the Design Review Board in a recommended final design of the plaza. The final
design of the plaza shall be submitted to the Agency Board for approval.
22
PARKING
In order for the downtown area to grow, retain a strong retail sector, and
maintain a quality environment, a comprehensive Parking Policy which is tailored to
the special opportunities and constraints of downtown is required. This Plan also
encourages, as revitalization stimulates increased activity, the addition of some highly
visible and strategically located parking resources if and when they are needed.
Any attempt to revitalize downtown Ukiah shall require solutions to the
inefficient utilization of existing parking resources, enhancement of parking facilities,
and improvement of the public's perception of the lack of parking. This perception
is exacerbated by the predominant use of on- street spaces by downtown employees.
The County is a major downtown employer and its employees have the single greatest
impact, Monday through Friday, on downtown parking resources.
The Downtown Parking Policy as proposed by the Master Plan Committee is
outlined on pages 24 through 26. To provide a greater availability of downtown
parking spaces during the work week, designated County employee parking should be
implemented. Assigned parking for County employees will assist both the downtown
parking situation and the County employees themselves. Many of these employees
are forced, during the course of the day, to move their cars from one parking place
to another.
23
DOWNTOWN PARKING POLICY
Downtown Employee Parking
The most efficient and cost effective way to provide adequate parking is to
maximize utilization of existing resources. The City of Ukiah will establish downtown
employee parking incentives to increase utilization of existing public lots. The City
should enter into negotiations with downtown employee groups such as the
Downtown Merchants Association, and most importantly, the County of Mendocino
for a commitment and policy determination for full cooperation with the new parking
policies. Possible employee parking incentives based on the degree of participation
by a particular employer /group should be considered.
Since the Courthouse is a primary anchor downtown and jury participants can
impact available on- street resources, a component of the negotiations with the County
should include issuance of temporary permits to jurors for use in public lots.
Enhanced prior identification of lot locations with maps and directions will assist jurors
in locating lots.
On- Street Time Limit Parkins
Upon completion of negotiations with the various downtown employers, on-
street parking time limits should be reevaluated to meet the needs to control usage
by employees not participating in the incentive program.
On- street parking time limits should also be reevaluated to correlate consumer
needs to the assigned time limit in specific storefront locations. Spaces along School
Street may require reduced parking times to create a higher turnover and inhibit
employee usage. Other on- street parking locations within the downtown should be
appraised with time limits ranging from 15 minutes to 2 hours.
Metered Parkina
Metered parking is to be limited to municipal lots with the exception of on-
street meters surrounding the Oak Street parking facility. This particular series on-
street meters shall be maintained for 10 hours to provide an expansion of this lot's
available parking resources. All parking meters in downtown should be upgraded to
allow a maximum 10 -hour limit. This would provide incentive to the public and
downtown employees to utilize metered spaces located in public lots to provide for
all day security for their vehicle, and free those employees for more productive noon-
time uses such as dining and shopping in the downtown. The Committee also
recommends increasing meter fees to assist in financing public parking facility
improvements. i
24
Public Awareness
The City of Ukiah has already begun activities such as enhanced parking facility
signage to increase public awareness of available parking resources. Other activities
such as directional signage, informational flyers placed in businesses, counseling
downtown business and employees on the benefits of promoting a positive image,
notices to jurors, and residential newsletters will provide greater public recognition of
a positive perception of parking.
The City's program of public awareness should include an active campaign
among the downtown merchants and business community to present and perpetuate
a positive and enthusiastic image of downtown parking as well as other unique
downtown components.
The City of Ukiah and Redevelopment Agency should complete an annual
assessment of the parking conditions downtown. This will allow for consistent and
effective monitoring of parking needs as revitalization efforts increase business
activity.
A periodic appraisal of parking utilization to assure that resources are available
in a timely manner will help support and stimulate private revitalization investment.
These surveys will be used to plan the timing and location of future improvements.
In addition, the parking policy, including time limited on- street resources, will be
reevaluated periodically.
Parking Facility Improvements
Parking facility improvements in Phase I will consist of primarily landscape and
aesthetic improvements. If feasible, improvements to all public parking facilities shall
be completed without reductions to the number of existing parking spaces.
Improvements will be designed to enhance the site specific needs of each parking
facility. Required improvements include.
1. Low intensity, decorative security lights.
2. Enhanced internal pedestrian walkways with ground level lighting.
3. Perimeter and buffer strip landscaping.
All parking lot improvements should be completed in accordance with the
standards provided in the Downtown Design Guide.
Phase II parking facility improvements are recommended to accommodate
anticipated future growth in downtown activity. Those facility improvements include
expansion of the Standley and Main Street public parking facility, and evaluation of
the publicly owned parking facility on School Street north of Henry Street for possible
expansion, including a potential second deck.
25
When considering any property acquisitions for parking resource expansion, the
Redevelopment Agency will consider the potential of the site for other commercial
purposes. Prime commercial sites should not be utilized for future parking facility
development.
26
TRAFFIC /PEDESTRIAN CIRCULATION
The main emphasis of this Plan is to reduce traffic conflicts, improve traffic
patterns and internal vehicular circulation, enhance downtown accessibility for
pedestrians and bicyclists, (including the establishment of bike racks in the public
parking facilities and the downtown plaza) and make downtown traffic more efficient.
This in turn should contribute to a more inviting atmosphere for those who work,
shop, and travel through the area.
No major circulation changes are being proposed in this Plan's project list.
Circulation patterns are presently being considered through the City of Ukiah's General
Plan Revision Project. However, we recommend the Growth Management /General
Plan Steering Committee seriously consider the following recommendations:
Perkins Street
The Downtown Master Plan Committee recognizes Perkins Street as the primary
east /west entry into downtown and the need to improve circulation on Perkins Street
from the US 101 interchange to State Street. The Committee recommends
improvements be made to the existing freeway interchange and overpass, and the
intersection of Orchard Avenue to accommodate increasing vehicle pressure resulting
from residential development occurring east of Redemeyer Road.
Widening of Perkins Street should continue westward between Orchard Avenue
and Mason Street to provide for four traffic lanes and a two -way left turn lane.
Due to the built -out conditions that prevail on Perkins between Mason and
School Street, improvements to this portion of the corridor will be costly and may
require the relocation of some existing businesses. To minimize these potential
impacts and attain a genuine sense of community direction for improvements in this
area, the Downtown Master Plan Committee has studied two possible options and is
recommending the following,
1. The City continue to
secure land dedications
along the north
and south side of
Perkins to allow for
linear widening through
to State Street,
or
2. In order to preserve existing structures and businesses located on the north side
of Perkins between Mason and State, land dedications would be attained solely
on the south side of Perkins. The majority of these properties are currently
vacant or undeveloped, minimizing both costs and impacts to the least number
of existing businesses.
Extension of Clay Street to Leslie Street
The 1979
TJKM Traffic
Study of
the City of Ukiah
identified
the extension of
Clay Street
through to Leslie
Street
as an additional
east -west
corridor to the
27
downtown. This Plan recognizes the importance of relieving the pressure on both
Gobbi and Perkins Streets in conducting traffic and meeting the level of service needs
for east -west traffic in Ukiah.
In addition, recent commercial development along Orchard Avenue increases
the potential for Orchard Avenue to become a major north -south corridor. Hotels,
restaurants, and offices in this area will increase the demand on access to downtown,
further impacting vehicle traffic on Gobbi and Perkins Streets,
Perkins Street Transportation Center
The Master Plan Committee has identified the existing Railroad Center fronting
Perkins Street as a primary location for a consolidated transportation center. Because
of the large amount of available underutilized land, access to both Perkins and Leslie
Streets and proximity of US 101, we recommended the General Plan Committee
consider the Railroad Center for this purpose.
In a study to identify potential future locations, the Mendocino Transit Authority
selected this location, an action which was endorsed by the Ukiah City Council, as a
primary location for a future central operations facility. Recent successes by the
North Coast Railway Authority indicate the future for passenger rail service through
and to Ukiah is optimistic. In addition, renewed service to the area by Greyhound Bus
lines and the establishment of a taxi service in Ukiah complete the spectrum of
transportation services available to residents and visitors.
A centralized facility for these services will ensure the visitor a smooth
transition from one service to another, delivering them to their destination in the least
troublesome fashion.
By locating these services in a geographically centralized location to both the
City and the greater valley, circulation impacts from unnecessary cross -town trips
would be minimized.
Proposed Phase I circulation projects are listed below.
1. Main Street - Main Street serves as the downtown's eastern most, north -south
traffic corridor, running the full length of the downtown. It is also the eastern
border of the commercial core and provides a circulation link for the Library,
Social Services, and residences to the downtown. The Committee recommends
Phase I Improvements for Main Street be the installation of:
a. Bike Lane - The previously discussed facilities provide appropriate
destinations for bicycle traffic along Main Street. As such, bicycle lanes
should be completed along the length of Main Street between Gobbi and
Norton Streets.
b. Crosswalk Treatments - Located at the corner of Main and Standley
Streets and north of the Library is a 115 space municipal parking facility.
This lot is currently underutilized and should be encouraged as a resource
for downtown employee parking. To enhance pedestrian access and
encourage usage of this facility, decorative crosswalk treatments should
be completed along Main Street. Initial projects should commence at the
Main and Perkins Street intersection, and progress to Standley and Smith
Streets northward, and Church and Stephenson Streets to the south.
20 State Street - State Street provides the City of Ukiah's only complete north-
south corridor and, therefore, serves as a north and south entry into downtown
from the freeway. Until such time as an alternative corridor adjacent to, rather
than through the downtown can be identified and completed, State Street
should be considered as a primary traffic -mover with pedestrian uses
subordinate to vehicle flow. However, since State Street divides the down-
town through the center, some methods to minimize pedestrian barriers should
be provided to encourage increased bicycle and pedestrian activity to Main
Street facilities such as the Library, municipal parking, and retail services. The
following projects recommended between Talmage and Low Gap Roads shall
be completed during Phase I.
a. Two -Way Left -Turn Lanes - To assist the smooth
traffic from driveways and cross streets, and to
operations along State Street, the completion of a
is recommended. Along South State Street the
begin at Seminary Avenue and continue south to
north, the lane should begin at Norton Street and
Gap Road.
and consistent flow of
improve traffic safety
two -way left -turn lane
left -turn lane should
Talmage Road. In the
continue north to Low
b. Signalization - The intersection of Low Gap Road and State Street is
currently signalized. However, no signalization to assist left- turning
vehicles is present. Left -turn signals and pockets should be constructed
at this intersection for north and south -bound traffic on State Street,
turning east and west onto Low Gap Road and Brush Street. Construc-
tion of these signals will enhance the level of service for State Street and
appropriately mitigate a potential traffic hazard.
c. Crosswalk Treatments - While
oriented businesses, the high
combined with its width, make
pedestrian avenue. However,
improved delineation of pedestri
perception of State Street as
29
State Street itself has some pedestrian -
level of through traffic on the street,
it somewhat inappropriate as a primary
future streetscape improvements and
an crosswalks should serve to reduce the
a barrier between the east and west
portions of downtown and encourage walking and bicycling between
these two sections. Crosswalk treatments on State Street will be
completed on the same east -west intersections as those indicated to
occur on Main Street.
3. School Street - School Street is identified by the Master Plan Committee as the
primary retail corridor and shopping focal point of the downtown. In order to
complete planned streetscape improvements, some parking realignments will
occur. However, no vehicle circulation changes are recommended in this Plan.
a. Crosswalk Treatments - Improved delineation of pedestrian crosswalks
is planned for School Street to be consistent with similar improvements
on Main and State Streets. However, School Street crosswalk treat-
ments must be compatible with additionally planned streetscape
improvements. The City of Ukiah, in conjunction with the Downtown
Improvement District, has provided temporary special treatment of
crosswalks in this area. The City will continue this effort and complete
the crosswalk improvements with permanent materials such as brick or
colored concrete to be consistent with the previously discussed
streetscape design.
4. Local East -West Access Routes - No circulation improvements to these streets
is recommended in this Plan during Phase I. However, as the General Plan
Revision Project is completed and /or other public right -of -way improvements
discussed in this Plan occur, additional circulation changes may be proposed
and implemented.
50 Creek Restoration - The Master Plan Committee recognizes the potential of
Ukiah's creeks to be more than urban drainage channels and further recognizes
the potential for our creeks to serve as scenic view corridors as well as
pedestrian and bicycle oriented park strips. Recent public concern over this
issue has resulted in the formation of the Ukiah Creek Coalition and the joint
submittal of a $50,000 creek reclamation grant proposal to the State of
California, Department of Water Resources by the City of Ukiah and the Creek
coalition.
The Master Plan Committee recommends the Redevelopment Agency continue
to work with interested citizen groups to pursue all available State and federal
grant and assistance programs to complete creek reclamation efforts.
Recognizing the ambitious nature of the projects discussed throughout this
plan, the Committee recommends funding be provided by the Agency to match
or enhance any grants received.
,I
30
56 Public Signage - While downtown Ukiah's public signage is not as deficient as
other communities it requires substantial improvement to accomplish its
directional and informational objectives. The planned improvements will assist
in establishing a positive image for downtown, directing vehicle, pedestrian,
and bicycle traffic to public parking lots and providing shoppers and visitors
adequate information. Public signage should provide information for the most
direct route to a targeted facility.
The purpose of these public information signs will be to provide direction to key
downtown facilities and services such as the Courthouse, Civic Center, Library,
Post Office, public parking, Sun House, and Held -Poage Library. Easy
identification of each public information sign will be provided by clear and
prominent display of the City's logo within the framework of the sign.
Monument style, downtown signs should be placed at strategic areas along
entry corridors to the downtown and identify entry into downtown.
RETAIL /COMMERCIAL IMPROVEMENTS
1. Downtown Core Ground Floor Retail - In order to successfully revitalize the
downtown economy, a stronger retail /commercial mix of businesses on the
street level of the downtown is necessary. A stronger, more consistent street
level retail mix will increase overall shopping oriented foot traffic, create greater
flow of shoppers from one retail business to another, and stimulate consumer
activity in the downtown on a seven -day per -week basis.
Generally, individuals come to the downtown for a single destination or errand,
and limit the amount of time they devote in the downtown. As a result, there
is little or no retail /commercial flow from one downtown retail business to
another, as there is in shopping centers. A stimulating, street level retail mix
will result in expanding the variety of reasons and purposes for coming to the
downtown, and increase the amount of pedestrian traffic.
Since effective retailers seek to be located adjacent to or in close proximity to
other successful retailers, increased foot traffic is critical to reducing vacancies,
and increasing the desirability of downtown locations.
The Master Plan Committee recommends the following series of steps be taken
to encourage locating new businesses into the downtown area, and to improve
the continuity of the commercial /retail mix:
a. A Downtown Business Recruiter /Commercial Leasing Agent should be
retained by contract for the expressed purpose of recruiting new,
31
substantive retail /commerce oriented businesses to the downtown. This
position should work for Main Street and be funded from the Downtown
Improvement District on a commission basis.
Retail /commercial revitalization is dependent on the recognition by
downtown property owners, tenants, and merchants, that the down-
town, if it is to be truly competitive with the shopping centers, must be
viewed and operated as a unified single entity.
b. Economic incentives to first year businesses which may include utility
discounts, reimbursement for first year business license and Business
Improvement District fees, and lease /rental discounts based on the
number of new quality part-time and full -time jobs created, should be
established.
2. County Services Impact - The downtown is identified primarily as a govern-
ment, business, and professional center due in large part to the Courthouse and
large number of County offices. Any relocation of the County to a site or sites
outside the downtown or to a centralized location in the area will create
vacancies in their current satellite locations.
While this will create tremendous opportunities for more appropriate retail and
service businesses in those storefront locations, the sudden surge in vacancies
and the potential loss of the County employee population could severely impact
revitalization efforts. This serves to underscore the importance of the
aggressive business recruiting effort recommended above.
In response to past policy commitments by the Board of Supervisors to
maintain County offices in the downtown, Phase II of the revitalization program
will assist the County of Mendocino in completing a County Administrative
Complex. The Agency's goal is to provide centrally located County services in
the downtown area and further establish the downtown as a governmental
services center. County relocation or concentration of services will require
continuous and cooperative communications between all agencies and
interested parties.
OTHER IMPLEMENTATION STRATEGIES
Downtown Coordination /Promotions
To effectively promote revitalization and recognition of downtown as the center 1
.
of our community, a well coordinated, consistently planned year- around calendar of
32
events and promotional activities is essential. A series of events and gatherings in
the downtown can coalesce the community, stimulating greater awareness of the
downtown, promoting local business activity, capturing outside revenues through an
enhanced tourist trade, and establishing Ukiah as a viable destination site. Many
downtown promotional and /or community events could become regional draws similar
to the Downtown Merchant's recently held old time car show or the annual Lions
sponsored Air Show.
Ukiah currently has three major groups coordinating downtown activities; Ukiah
Main Street, Greater Ukiah Chamber of Commerce, and the Downtown Merchants
Association. All of these fine organizations conduct independent as well as combined
promotional events. In order to further improve the coordination and frequency of
downtown events, the Committee recommends the position of a Downtown Events
Coordinator be established and function through Main Street for the purpose of
scheduling and directing promotions and events, and acting as liaison between the
City, Chamber, and Main Street Downtown merchants. A series of annual events
should be scheduled by the Coordinator that would emphasize the uniqueness of the
Ukiah Valley, and our downtown.
Other activities under the auspices of the Coordinator's position might include
promotional materials development and distribution, and the development of
specialized downtown goods and services.
Community /Downtown Regional Conference Center
Ukiah is becoming increasingly recognized for regional professional conferences,
training seminars, and meetings for both the private and public sector. The lack of
adequate facilities to accommodate such professional gatherings acts as a constraint
on the number, type, and quality of conferences or seminars currently being held in
the Ukiah area. Our beautiful surroundings, quality of life, and many points of interest
in Mendocino County for the visitor, make a regional conference or seminar in this
area very attractive.
A downtown multi - purpose Community Center that, among other purposes,
serves as a downtown regional Conference Center will substantially increase activity
and foot traffic in our downtown, further establish the downtown as a central
gathering place in the community, and serve to enhance Ukiah's position as a
destination point for the out of town visitor /tourist.
The Master Plan Committee believes the establishment of a downtown multi-
purpose Community Center to be just as central to successful downtown revitalization
as any other element of this Plan. The Committee recommends the identification and
-acquisition of appropriate property, and design of the Community Center be completed
during Phase I. Actual construction will be completed during Phase II of downtown
revitalization.
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Overall Economic Development
This Downtown Revitalization Master Plan represents a major part of the City`s
overall community -based Economic Development Program. However, the City's
community based overall Economic Development Program goes beyond the downtown
and encompasses the greater Ukiah area. It is a program that will be focused on
retention and expansion of existing businesses, support for business start-ups, and
the recruitment of environmentally sensitive manufacturing -based businesses.
In October, 1991, the Redevelopment Agency contracted with Williams -
Kuebelbeck and Associates to conduct an economic evaluation of the Ukiah area.
One of the primary focuses of the study was to analyze the strengths and weaknesses
of our downtown, as well as our overall local economy. The findings and recommen-
dations of that study, as well as the work being done through the Growth Manage-
ment /General Plan process, will constitute the basis for the City's Overall Economic
Development Program.
A key component of the City's Economic Development Program is the
establishment of a One -Stop Business Assistance Center at the renovated former City
Hall in the downtown.
The purpose of this Center is to provide a central location, easily accessible to
the public, where a full range of information related to business services, programs,
and assistance is available. This will include, but not be limited to, job and business
counseling and training services, data and information retrieval services, available site
location assistance, financial and business incentive assistance, and business
regulatory counseling and advocacy services. Also available will be information
regarding public and private organizations involved in economic facilitation,
development, and assistance.
Also to be developed and located within the City's One -Stop Business
Assistance Center, will be a regional economic development database that lists
resources, contact agencies and locations, comprehensive land use requirements, and
labor force data. The data base will be County -wide, linked to a large regional base
of information.
Pertinent to the database will be a resource library providing information on
federal and state training programs as well as local job development skills and contract
training facilitators, such as Mendocino College and private trade schools and
educators.
The City of Ukiah Business Assistance Center will be staffed by contracted non-
profit economic development organizations within the community and will be proactive
in business retention and recruitment activities in the downtown. They will work in
cooperation with Main Street, Downtown Merchants, and the Chamber of Commerce
to coordinate a combined Business Retention and Recruitment Program. This program
will include an active outreach effort to ensure the stability of business, minimize the
detrimental turnover of marginal businesses and high vacancies in prime retail
locations, and provide an emphasis on business retention and expansion.
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Working in cooperation with this group, the Redevelopment Agency will assist the
Business Retention and Recruitment Program to identify marginal businesses in the
downtown. Businesses which can be revitalized will be counseled as to available
programs and resources to assist them.
Finally, the Redevelopment Agency will be assuming an advocacy role for
specifically selected projects that correspond to the City's overall community -based
Economic Development Program,
Downtown Revitalization Education and Outreach Programs
The Redevelopment Agency will selectively participate with downtown groups and
conduct seminars, speaking engagements, and personal outreach efforts to educate
merchants and business people on promoting a positive downtown image and enhancing
business performance. The Agency will strongly encourage business people, groups,
and property owners to participate in increasing the community's knowledge of the
revitalization effort and the downtown's offerings.
More specifically, a series of informational meetings will be co- hosted by the Agency and
Main Street for property owners, tenants and downtown business merchants to acquaint
them with the goals of the Master Plan, and specific programs that are available.
Downtown Signature
An attractive and tasteful signature or logo should be developed for downtown
Ukiah. The logo should reflect the downtown's qualities and image. Following input
from the Downtown Master Plan Committee, the Redevelopment Agency will select a
logo design which best meets the desired criteria. Uses for the logo will include
directional signage at the downtown entrances, newsletter heading, downtown
advertisements, and any other element which can give a sense of place identity and
unity to the downtown.
Farmers Market
The City has been discussing with the current organizers of the Farmers Market
concerning the possibility of establishing a permanent 30 to 50 stall, open air, sheltered
Farmers Market facility in the downtown area. Such a facility would provide a year -
round quality Farmers Market with regular days and hours and serve as another catalyst
for increasing the range of downtown activities and uses.
Future Role of the Downtown Master Plan Committee
The Downtown Master Plan Committee will be actively involved in formulating the
recommended business incentives and facade renovations, and marketing loan /grant
programs. The Committee wil also be involved in site location for the Downtown Plaza
and Community Center.
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Jim
ITEM NO.: 2b
MEETING DATE:
November 14 2012
AGENDA SUMMARY REPORT
SUBJECT: Strategic Planning Discussion
Background: Strategic Planning Ad Hoc members Rodin and Crane have asked that the City Council take
some time to answer the following question:
Since the City Council Adopted the Four Strategic Goals, what has Changed? The goals are:
Strategy 1: Maintain downtown historic place as a regional center of civic and economic activity
Strategy 2: Planning Valley -Wide takes place based on sound planning principles
Strategy 3: Develop a prioritized plan for maintaining and improving public infrastructure
'Strategy 4: Council and staff work together to create a more responsive and effective workplace
environment.
Discussion: The City Manager provides the following updated information for the City Council to use as
part of its discussion.
Milestones Achieved Under Each Strategy Are
Strategy 1:
• Palace Hotel Owner is engaged in resolving structural, maintenance, and ownership issues which
have been barriers to revitalization of the building.
• Soil contamination clean -up plan has been finalized for Rail Road site. Actual clean -up is dependent
upon future steps in State Court House process:
• Advocacy for continuance of State Court House project has been a positive factor in maintaining the
Ukiah project on the list of Court House projects to move forward.
Recommended Action(s): Council have discussion regarding strategic goals.
Alternative Council Option(s):
Citizens advised:
Requested by:
Prepared by: Jane Chambers, City Manager
Coordinated with: Council members Rodin and Crane
Attachments:
Approved:t.:.
Ja'" e Chambers, City Manager
• The City of Ukiah has facilitated a business improvement loan for a new downtown restaurant, a pilot
project for outdoor patio and bike parking, and full occupancy of downtown storefronts as part of
Council approved economic development activities.
• The City has received a grant that will be coupled with other funds, to provide funding for the
Downtown Streetscape improvements scheduled for State Street.
• The City Council has adopted the Downtown Zoning Code.
Strategy 2:
• The City of Ukiah Municipal Services Review (MSR) is complete and has been adopted by LAFCO.
• The Ukiah Valley Area Plan has been adopted.
• Ad Hoc members of the tax sharing committee anticipate presenting a tax sharing proposal for
consideration by the Mendocino Board of Supervisors and the Ukiah City Council in the near future
• The City of Ukiah has engaged with the Ukiah Valley Fire District in processes to move towards
regional fire services, including sharing of a Fire Chief, operations, training, and volunteers. Joint
Dispatch for each agency will begin in March, 2013.
• The City continues to pursue in -fill development in the Redwood Business Park, including the traffic
improvements necessary to provide for full build out of the area.
Strategy 3:
• Initial Capital Improvement Plan (CIP) has been adopted
• Five year rates were adopted for water and sewer utilities, updating of connection fees under study
• New Electric Sub - Station completed, reliability of system has been enhanced, number and length of
outages reduced.
• CEQA process is underway, for both the Recycled Water Master Plan study and in order to finalize
the City of Ukiah Water Use permit process with the State of California.
• Significant infrastructure improvements have been accomplished in both the water and sewer
systems, as well as several street improvement projects.
• The City of Ukiah has received a grant, and design is underway, for the initial phase of rail trail.
Strategy 4:
• Council and staff have developed productive working relationships, working on closing Ad Hoc and
other committee matters on a variety of issues. An example was the completion of the new solid
waste agreements.
Fiscal Impact:
17 Budgeted FY 12/13 New Appropriation Not Applicable Budget Amendment Required